[Federal Register Volume 61, Number 15 (Tuesday, January 23, 1996)]
[Rules and Regulations]
[Pages 1715-1716]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-767]



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DEPARTMENT OF AGRICULTURE

Forest Service

36 CFR Part 291

RIN 0596-AB43

Occupancy and Use of Developed Sites and Areas of Concentrated


Public Use; Expanded Locations Where Admission Fees May Be 
Charged

AGENCY: Forest Service, USDA.

ACTION: Final rule.

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SUMMARY: This final rule expands the locations at which the Forest 
Service may charge admission fees under the provisions of section 4(a) 
of the Land and Water Conservation Fund Act of 1965, as amended. The 
Forest Service previously had statutory authority to charge admission 
fees only at congressionally designated National Recreation Areas 
administered by the Secretary of Agriculture. This final rule 
implements the 1993 amendments to the Land and Water Conservation Fund 
Act of 1965 that provide additional authority to charge admission fees 
at congressionally designated National Monuments, National Volcanic 
Monuments, National Scenic Areas, and no more than 21 areas of 
concentrated public use designated by the Forest Service. The intended 
effect of this final rule is to conform the existing rule to the 
statutory amendments.

EFFECTIVE DATE: This rule is effective January 23, 1996.

FOR FURTHER INFORMATION CONTACT: Joe Meade, (202) 205-1129, Recreation, 
Heritage, and Wilderness Resources Staff, Forest Service, USDA, P.O. 
Box 96090, Washington, D.C. 20090-6090.

SUPPLEMENTARY INFORMATION: Before it was amended in 1993, the Land and 
Water Conservation Fund Act of 1965 (16 U.S.C. 4601-6a) authorized the 
Secretary of Agriculture to charge admission fees at National 
Recreation Areas. That authority is implemented through regulations at 
36 CFR Part 291, Occupancy and Use of Developed Sites and Areas of 
Concentrated Public Use.
    In his report, ``A Vision of Change for America,'' President 
Clinton made clear his intention to increase revenues from use of 
recreational facilities on public lands. As part of his fiscal year 
1994 budget package, the President transmitted proposed legislation to 
Congress that would permit the Secretary of Agriculture to charge 
admission fees at National Monuments, National Volcanic Monuments, 
National Scenic Areas, and no more than 21 areas of concentrated public 
use, in addition to National Recreation Areas. Congress endorsed this 
proposal in the passage of the Omnibus Budget Reconciliation Act of 
1993 (Pub. L. 103-66), which includes such provisions. The act at 16 
U.S.C. 4601-6a(a) defines an area of concentrated public use as an area 
that is managed primarily for outdoor recreation purposes, contains at 
least one major recreation attraction where facilities and services 
necessary to accommodate heavy public use are provided, and provides 
public access to the area in such a manner that admission fees can be 
efficiently collected at one or more centralized locations.
    After this rule takes effect, the Chief of the Forest Service will 
make a determination of no more than 21 areas of concentrated public 
use where fees may be charged. The Chief's determination will be used 
on recommendations from the field units by Regional Foresters of areas 
that meet criteria in the preceding definition from the act and 
requirements in this rule. The agency policy and procedures related to 
this rule and to the field units' review and recommendation of areas 
are being issued in an amendment to Forest Service Manual chapter FSM 
2330, Publicly Managed Recreation Opportunities. This amendment is 
available upon request from the person listed under FOR FURTHER 
INFORMATION CONTACT.

Compliance with Administrative Procedure Act

    Pursuant to 5 U.S.C. 553(b)(3)(B) of the Administrative Procedure 
Act, the Forest Service has determined that publication of this rule 
for notice and comment prior to adoption is unnecessary. This final 
rule makes minor technical changes in the existing regulations at 36 
CFR Part 291 so that they conform with the Land and Water Conservation 
Fund Act, as amended by the Omnibus Budget Reconciliation Act of 1993. 
This rulemaking does not supplement or make major changes in 

[[Page 1716]]
policies applicable to the administration of admission fees charged at 
sites in the National Forest System pursuant to the Land and Water 
Conservation Fund Act of 1965.

Regulatory Impact

    This final rule has been considered in light of the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.). It has been determined that 
this action will not have a significant economic impact on a 
substantial number of small entities as defined in that act. It will 
not impose recordkeeping requirements on them; it will not affect their 
competitive position in relation to large entities; and it will not 
affect their cash flow, liquidity, or ability to remain in the market.

Unfunded Mandates Reform

    Pursuant to Title II of the Unfunded Mandates Reform Act of 1995, 
which the President signed into law on March 22, 1995, the Department 
has assessed the effects of this rule on State, local, and tribal 
governments and the private sector. This rule does not compel the 
expenditure of $100 million or more by any State, local, or tribal 
governments or anyone in the private sector. Therefore, a statement 
under section 202 of the act is not required.

Executive Order 12630

    This final rule has been reviewed for its impact on private 
property rights under Executive Order 12630 of March 15, 1988, as 
implemented by the United States Attorney General's Guidelines for the 
Evaluation of Risk and Avoidance of Unanticipated Takings. Executive 
Order 12630 does not apply because this final rule makes technical and 
administrative changes applicable to the administration of admission 
fees charged at sites in the National Forest System.

Executive Order 12778

    This rule has been reviewed under Executive Order 12778, Civil 
Justice Reform. After adoption of this final rule, (1) all state and 
local laws and regulations that conflict with this rule or that impede 
its full implementation will be preempted; (2) no retroactive effect 
will be given to this final rule; and (3) it will not require 
administrative proceedings before parties may file suit in court 
challenging its provisions.

Controlling Paperwork Burdens on the Public

    This rule does not contain new recordkeeping or reporting 
requirements or other information collection requirements and does not 
impose additional paperwork burdens on the public. Therefore, the 
review provisions of the Paperwork Reduction Act of 1980 (44 U.S.C. 
3507) and its implementing regulations at 5 CFR Part 1320 do not apply.

Environmental Impact

    Section 31.1b of Forest Service Handbook 1909.15 (57 FR 43180; 
Sept. 18, 1992) categorically excludes from documentation in an 
environmental assessment (EA) or an environmental impact statement 
(EIS) ``rules, regulations, or policies to establish Service-wide 
administrative procedures, program processes or instructions.'' Based 
on the technical and administrative nature and scope of this 
rulemaking, it has been determined that this rule falls within this 
category of actions and that no extraordinary circumstances exist which 
would require preparation of an EA or an EIS.

List of Subjects in 36 CFR Part 291

    National Forests, Recreation and Recreation Areas.

    Therefore, for the reasons set forth in the preamble, Part 291 of 
Chapter II of Title 36 of the Code of Federal Regulations is hereby 
amended as follows:

PART 291--OCCUPANCY AND USE OF DEVELOPED SITES AND AREAS OF 
CONCENTRATED PUBLIC USE

    1. Revise the authority citation for Part 291 to read as follows:

    Authority. 16 U.S.C. 460l-6a.

    2. Add Sec. 291.1 to read as follows:


Sec. 291.1  Definitions.

    For the purposes of this part the following term shall mean:
    Area of concentrated public use: An area that is managed primarily 
for outdoor recreation purposes, contains at least one major recreation 
attraction where facilities and services necessary to accommodate heavy 
public use are provided, and provides public access to the area in such 
a manner that admission fees can be efficiently collected at one or 
more centralized locations.
    3. Amend Sec. 291.9 by redesignating it as Sec. 291.2 revising 
paragraph (a) to read as follows:


Sec. 291.2  Admission fees and recreation use fees.

    (a) Fees shall be charged for admission to Congressionally 
designated National Recreation Areas, National Monuments, National 
Volcanic Monuments, and National Scenic Areas administered by the 
Secretary of Agriculture and no more than 21 areas of concentrated 
public use designated by the Chief of the Forest Service as provided by 
section 4(a) of the Land and Water Conservation Fund Act of 1965, as 
amended.
 * * * * *


Sec. 291.10  [Redesignated as Sec. 291.3]

    4. Redesignate Sec. 291.10 as Sec. 291.3.

    Dated: December 19, 1995.
Mark Gaede,
Acting Deputy Under Secretary, Natural Resources and Environment.
[FR Doc. 96-767 Filed 1-22-96; 8:45 am]
BILLING CODE 3410-11-M