The Senate Public Lands and Forests Subcommittee of the Energy and Natural Resources Committee received written testimony from OIA Vice President of Government Affairs Myrna Johnson earlier this month. The testimony voiced the concerns of OIA and its members regarding the implementation of a permanent recreation fee program on American's public lands. A recreation fee demonstration program has been in effect since 1996 and is continued by seven extensions through the appropriations process. It is not continued through the committees with proper jurisdiction over Department of Interior and Forest Service programs. Congress is considering making a fee program a permanent fixture on public lands.

OIA's testimony reflects our position that public lands should be largely free of fees. We strongly urged the committee to limit fees to developed sites such as campgrounds and that any dispersed recreation, such as trail and backcountry hiking, rock climbing, or mountaineering should not be assessed any fee.

Statement of Myrna Johnson

Vice President, Government Affairs, Outdoor Industry Association

Before the Subcommittee on Public Lands and Forests, Committee on Energy and Natural Resources
United States Senate

On Implementation of the Recreation Fee Demonstration Program

May 6, 2004

Chairman Craig, Senator Wyden, and Members of the Subcommittee:

Thank you for the opportunity to submit testimony on behalf of the Outdoor Industry Association (OIA) regarding the Implementation of the Recreation Fee Demonstration Program and our views on the establishment of a permanent, multi-agency recreation fee authority.

OIA is the trade association for the more than 4,000 manufacturers, distributors, suppliers, sales representatives and retailers in the $18 billion Outdoor Industry. Members include recognized brands such as Black Diamond, Columbia Sportswear, Eagle Creek, JanSport, Johnson Outdoors, Kelty, Malden Mills, Merrell, Mountain Hardwear, Patagonia, Timberland, The North Face, Perception, Pearl Izumi, Salomon, Swiss Army Brands, W.L. Gore, Yakima, and numerous others. I submit testimony today on behalf of Outdoor Industry Association and our members and appreciate the opportunity to present our unique perspective and experience.

BACKGROUND

America's public lands offer quality outdoor recreation opportunities that are easily accessible, accommodate a broad range of activities and abilities, and are affordable. As the popularity of outdoor recreation grows, so do the burdens on the federal agencies administering these lands to provide a clean, safe and enjoyable experience. Unfortunately, over the last several years, appropriations for maintenance and enhancement on public lands have not kept pace with growing demand and have, in fact, decreased as use has risen.

The programs that protect, maintain, and enhance our public lands have been chronically under-funded over the last several years. The fee demonstration pilot program sought to reverse this trend by providing additional resources to supplement existing appropriations, but not to supplant appropriated funds. The fee demonstration pilot program was initially instituted in 1996 as a three-year test program, but has received seven extensions in subsequent years through the appropriations process, rather than by the congressional committees who have the jurisdiction and responsibility for creating and shaping Department of Interior and Forest Service Programs. The program appeared to become a de facto permanent program without public debate and input, proper oversight, or clear and consistent standards communicated to users.

OIA supported the concept of a time-limited fee demo pilot program to the extent such a program was necessary to address concerns over the limited appropriations available for maintenance and enhancement programs on public lands. Specifically we agreed with the assessment of fees in those areas that require intensive management of developed and high use recreation sites, including campgrounds and boat launches.

OIA continues to support limited implementation of a user fee program on National Park Service lands and to a lesser extent, specific sites administered by the U.S.D.A. Forest Service, U.S. Fish and Wildlife, and Bureau of Land Management. In the most recent survey of our members, 2/3 or more of respondents found it acceptable to charge fees at National Parks and at highly developed recreation sites on public lands. Similarly, 2/3 opposed fees for underdeveloped recreation, like trail use, backcountry hiking, and mountaineering. Additionally, nearly 75 percent of OIA members find National Park fees acceptable, but less than half agree with user fees at Forest Service, U.S. Fish and Wildlife or BLM lands where recreation use is more dispersed.

These findings demonstrate support for fees on public lands where funds, in addition to annual appropriations, are necessary to remediate impact on the environment and wildlife from high use, or to provide services and/or facilities to the visiting public, or for maintenance and enhancement of those services or facilities. We urge cautious evaluation and strong parameters in establishing a permanent fee program on public lands, including the determination of cost and affordability, site locations of such a program, impact on local communities, and management and oversight of such a program. The process in determining the parameters for these fees must include and consider the views of the outdoor industry, outdoor users, and the general public.

OIA's POSITION

OIA's position on fees has been consistent throughout the Recreation Fee Demonstration Program and is today unchanged as this committee evaluates the feasibility of a permanent fee program. While OIA believes that recreational use of taxpayer funded public lands should ideally be free of charge, the decrease in annual appropriations and increase in public use of National Parks and developed sites on other public lands requires an additional funding structure to provide an enjoyable and quality experience for the user. To the extent that a permanent fee program is necessary, OIA supports the collection of an affordable fee at National Parks and limited implementation of a fee collection program at developed sites within Bureau of Land Management, U.S. Fish and Wildlife, Bureau of Reclamation, and Forest Service lands.

Our support for these fees is guided by the following general principles:

•Revenue generated by a permanent fee collection program should supplement appropriations and not supplant it

•A majority of the revenue generated by any fees collected at a public land site should be returned for expenditure at that public land site

•Most Bureau of Land Management, U.S. Fish and Wildlife, Bureau of Reclamation, and Forest Service lands should be free to enter and use for recreation

•Fees should only be charged where there is a direct and demonstrable benefit or service to the user

•Local oversight and strong program limits are needed

•Fee revenues should not be used for general management, operational costs, or for new capital construction projects

•Groups of users should not be singled out to pay for services that benefit a broader community

Revenue generated by a permanent fee collection program should supplement appropriations and not supplant it

A permanent fee collection program on public lands will generate substantial revenues for maintenance and restoration projects on those lands, especially in high use areas such as campsites, reservation services, and boat launch facilities. Congressional appropriations to the Department of Interior or Department of Agriculture for public lands should in no way be tied to revenue generated by a fee collection program.

A majority of the revenue generated by any fees collected at a public land site should be held for expenditure at that public land site

OIA believes that not less than 80 percent of the fees collected at a specific site or area should be held in trust for maintenance and restoration expenditures at that site or area. The remaining balance should be used for maintenance and restoration on other public lands

Most Bureau of Land Management, U.S. Fish and Wildlife, Bureau of Reclamation, and Forest Service lands should be free to enter and use for recreation

OIA supports the collection of entrance fees and limited user fees at National Parks and developed recreational areas of other public lands. We are opposed to the collection of fees for dispersed recreation, such as backpacking and recreation in undeveloped wilderness areas in National Parks, Bureau of Land Management, U.S. Fish and Wildlife, Bureau of Reclamation, and Forest Service lands. Users of these areas are generally fewer in numbers, require little or no direct services or benefits, have less impact on the environment and wildlife, and seek the freedom of a wild country experience. Charging fees to use undeveloped wilderness areas undermines that experience.

Fees should only be charged where there is a direct and demonstrable benefit or service to the user

OIA believes that fees should be charged only for specialized outdoor recreation sites such as developed campgrounds, reservation services, boat launch facilities, restrooms, and visitor centers and agree that a list of sites or services that are and are not included in the fee program should be drafted and included in any authorizing legislation. We specifically oppose including parking lots or trailheads as facilities where a fee can be collected. Where possible, projects completed using fee revenues should be marked with signage

Local oversight and strong program limits are needed

In addition to Congressional oversight, each fee program should have an advisory committee made up of local and regional recreation users and outdoor recreation businesses of the area, to help set goals, monitor progress, oversee management of the program, and assess local economic impact of the fee program. Federal land management agencies should coordinate a fee program with the advisory committee and other local, State and regional entities to minimize overlapping costs and simplify fees for the visiting public.

Fee revenues should not be used for general management, operational costs, or for new capital construction projects

OIA supports the implementation of a permanent fee program only as a supplement to Congressional appropriations. The revenues generated by such a fee program should be expended to alleviate maintenance backlogs, restoring or maintaining existing structures or services, and specific, goal-based management projects that utilize fee revenue for a limited time. General management, operational costs, and new capital construction projects should be funded from Congressional appropriation.

Groups of users should not be singled out to pay for services that benefit a broader community

Activities such as paddling, rock climbing, bicycling or other specific recreation should not be assessed an additional fee to participate in that activity, particularly when revenues of that fee benefit all users.

OIA is dedicated to ensuring a safe, fun and affordable outdoor experience for users of America's public lands. We can only consider supporting certain user fees if there is a firm commitment to adequate public land funding via appropriations with an emphasis on restoration and maintenance. We commend the committee's work towards a more permanent solution for recreation user fees and would be pleased to work with the committee towards that goal. OIA commits to participating in the public process that we believe is required for evaluating and setting parameters for this program. Fees will impact outdoor recreation for the future, as well as how recreation is managed on public lands. OIA pledges to work with Congress and public land agencies to ensure that our customers will continue to enjoy quality outdoor recreation opportunities on America's public lands.

Thank you for the opportunity to express the position of The Outdoor Industry Association.