Testimony of Meg Maguire, President of Scenic America
Environment and Public Works Committee
United States Senate
Hearing on TEA-21 Reauthorization
“The Transportation Needs of Small Towns and Rural
Places”
August 20, 2002
Mr. Chairman, I am Meg Maguire, President of Scenic
America. On behalf of our Board and
members we appreciate the opportunity to present written testimony on the
re-authorization of TEA-21. We are proud to have been associated with this
legislation for the past 13 years.
Scenic America is a founding member of the Surface Transportation Policy
Project, the coalition that helped gain new transportation solutions to benefit
communities including the National Scenic Byways Program; Transportation
Enhancements; and programs affecting air quality, land use planning, and much
more. We thank Congress for these
far-reaching programs which have benefited travelers, residents of communities
large and small, and local businesses.
Scenic America is a national, nonprofit organization that
helps communities nationwide protect their scenic beauty and distinctive
community character. We have 10 state
affiliates and 15 associate organizations throughout the country. We are dedicated to the proposition that change
is inevitable; ugliness is not.
In re-authorization of TEA-21, Scenic America urges
Congress to take the following steps:
·
Increase and make
entirely merit-based the funding for the National Scenic Byways Program;
and continue eligibility for state scenic byways programs.
·
Mandate that all
federally-funded highway projects be planned according to the simple and
well-established principles of context-sensitive highway design (CSD) and
that they promote physically active communities;
·
Preserve all categories
of enhancements funding including funding for billboard removal
and acquisition of scenic easements;
·
Approach environmental
streamlining as an administrative issue rather than a legislative issue
that would weaken the key environmental laws that now ensure citizen
participation and expert study of proposed transportation projects; and
·
Resist any efforts by
the billboard industry in TEA-21 re-authorization to further tamper with the Highway
Beautification Act of 1965 or the Bonus Act. These laws badly need to be overhauled, but
they require a level of attention not possible or desirable in such a complex
bill as TEA-21. We recommend a thorough
Congressional inquiry in 2004.
Scenic Byways
The
National Scenic Byways program works. The Program now boasts 75 National Scenic
Byways and 20 All American Roads.
Communities come together to develop a corridor management plan to
protect outstanding natural, historic, cultural and scenic resources; and to
strengthen local businesses by promoting tourism. The Byways program is highly
popular with the 46 participating states plus the District of Columbia -- an
ideal partnership between federal, state and local governments, non-profit
organizations, and the business community.
Last
December, at the10th Anniversary Celebration of the National Scenic
Byways Program the byways community, primarily but not exclusively people from
small towns and rural America, came together to share successes and plan for
the future. The meeting affirmed the
high performance we have witnessed in the program:
1. Byways produce profits. Many small businesses have begun and
flourished along scenic byways. In
rural Arkansas along Crowley’s Ridge, there are 17 new tourist-oriented
businesses plus a new Hemingway-Pfeiffer Museum. In Vermont, the proprietor of the Strong House Inn testified to
her direct profit from working with other business owners in New York and
Vermont to promote the full length of the Lake Champlain Byway.
2. Byway grants leverage significant funds
from other sources. The San Juan
Skyway in Colorado received a $6,800 scenic byways grant and additional funding
to complete a $39,000 plan. To
implement the plan, the participating counties, a college, several nonprofit
organizations, the U.S. Forest Service, and the State of Colorado raised over
$6 million to preserve mining and railroad sites. And in Wisconsin, along
the Great River Road, byways grants are helping leverage funds for 33
interpretive kiosks and the Great River Road Scenic Byway Learning Center.
3. Byways protect, market, and interpret six
irreplaceable resources -- scenic, historic, cultural, archaeological, natural,
and recreational. Scenic easements and
billboard removal funding has helped maintain beautiful views along a number of
corridors. Byways communities are recognizing and restoring natural resources
along byway corridors; and interpreting local history and culture along these
regional corridors. Cyclists and hikers
are finding new opportunities to enjoy recreation along the byways too.
4. The National Scenic Byways Program is a
bottom-up program in which designated roads are recognized and put forward by
the states. The foundation of the national
program is at the state level. All national scenic byways must first be part of
a state scenic byways system (46 states participate including those represented
by most members of this committee).
That means that in states like Alaska, Wisconsin, Minnesota, and West
Virginia significant resource protection and economic development are
occurring as a direct result of the state initiated scenic byways. Therefore, in TEA-21 re-authorization, it is
important that states continue to be eligible for grant support to build the
programs within their states.
I
also want to commend the FHWA and America’s Scenic Byways Resource Center in
Duluth, MN for providing strong technical support and a fair process in running
this program. We believe that the current administrative and assistance
arrangement should continue and be strengthened in the years ahead. If all federal programs could show
beneficial results comparable to the National Scenic Byways Program, the
American people would have much greater confidence in the use of their tax
dollars.
The
National Scenic Byways Program merits substantially increased funding as it
grows and continues to yield community benefits. Scenic
America fully recognizes the tight financial constraints Congress faces in
funding this bill. Our research included information from FHWA and several
states to develop what we believe to be a conservative and defensible estimate
of the increases in program re-authorization.
Under
ISTEA the program received a total authorization of $80 million over six years.
Under TEA-21, funding has been approximately $25 million/year for a total $148
million over six years. Each year the
FHWA rejects an average of 60 percent of total funding requests. According to
officials in the FHWA and several states, there is an extensive screening
program at the state level, so FHWA is truly picking the best of the best. Virtually all of the proposals should and
would receive grants if funds were available.
Our recommendations on funding levels take into account the following:
· current unmet demand;
·
the recent addition of
Mississippi to the prog;
·
the increase of
nationally designated byways to 95 in June 2002; and
· growing political pressure for state byways programs
in Texas and Pennsylvania.
Based
on our research we believe that there is ample justification for an increase in
funding beginning at $57 million in FY 2004, increasing by $2 million each year
to account for inflation and modest new additions to the system up to $67
million in FY 2009. Over the six years
of the bill the total authorization level would be $372 million.
Finally,
we must comment on an effort last year to transform the National Scenic Byways
grant program from a purely merit-based program to an earmarked program, with
all the funds going to Congressionally selected projects in particular states.
Cries of distress went up from many grant applicants who have played by the
rules and were under consideration for funding. Was all of their painstaking
work on corridor plans, leveraging of resources, and grant applications for
naught? How was it possible for
Congress to snatch away a merit-based program with such a fine record of
achievement? Scenic America, the
American Recreation Coalition and the National Trust for Historic Preservation
vigorously opposed that effort. In the end, with $8.5 million of the
approximately $25 million in byways funding falling to earmarking, about $16.5
million was awarded to merit-based programs.
We
urge Congress to ensure that grants under the program, at whatever level of
funding, remain based entirely on merit.
Context-Sensitive Highway Design
Context
Sensitive Highway Design (CSD) should be required in planning all federally
funded projects. CSD is a significant breakthrough in transportation
policy and we thank Congress for its past wisdom in recognizing that roads need
not destroy vital resources.
Section
1016 (a) of ISTEA permitted the Secretary of DOT to approve projects designed
to standards that allowed for the preservation of historic or scenic
values. The National Highway System
(NHS) Act of 1995 strengthened this emphasis on context-sensitive highway
design with a provision in Section 304 that states:
A
design for new construction, reconstruction, resurfacing...restoration or
rehabilitation of a highway on the National Highway System (other than a
highway also on the Interstate System) may take into account...(A) the
constructed and natural environment of the area; (B) the environmental, scenic,
aesthetic, historic, community, and preservation impacts of the activity; and
(C) access for other modes of transportation.
To
take advantage of this progressive and visionary federal language, five pilot
states -- Connecticut, Maryland, Kentucky, Minnesota and Utah -- have adopted
context-sensitive design, retrained their project managers and engineers, and
sponsored region-wide training for other states. Vermont and New Jersey have legislation that sets new standards
and criteria; California has issued administrative guidelines and several other
states are seriously considering doing so. Some highway engineers are getting
the message that people have a deep love of the places where they live and want
road building to respect the assets of their communities. Federal legislation has helped immeasurably
to bridge this understanding.
The
results are exciting. For example, in
Maryland, local public officials report that the State Highway Administration
is working with communities as never before to achieve new solutions that
respect both needs for sound community transportation and resource
conservation.
In
addition, CSD promotes active communities.
The Centers for Disease Control have identified obesity as one of the
greatest threats to public health.
Conventional transportation design, with its emphasis on the automobile
and diminished regard for bicycle and pedestrian safety, promotes a lack of
physical activity and thereby contributes to obesity, while designing
transportation systems to promote physical activity does the opposite. For example, surveys have shown that more
than 60 percent of all adults say they would start walking or walk more often
if they had access to safe and secure pedestrian pathways. CSD would provide that access.
Today
we request that you make two small changes to the language in the NHS:
1. Change
the words “...may take into account...” to “...shall take into account.” In drafting the National Highway System Act,
the original context-sensitive design language under consideration by former
Congressman Bud Shuster and this committee used the word “shall,” but this was
changed at the last minute to “may.”
Based on the evidence of the last 10 years showing greatly improved
project results using context-sensitive design, we are convinced that no road
should be built with federal funding that does not incorporate
context-sensitive design principles and standards. In TEA-21 re-authorization,
we strongly urge Congress to go with its original instinct and require states
to incorporate context-sensitive highway design into all federally funded
projects.
2. Amend
Section (C) to read “access for other
modes of transportation including those that promote physically active
communities.” We also strongly urge Congress to respond to the intense
national concerns voiced by the Centers for Disease Control on the need to
create active communities to fight obesity and heart disease by requiring
federally-funded transportation projects to promote “access for other modes of
transportation, including those that promote physically active communities.” We believe that this addition will encourage
the integration of national public health objectives into transportation
planning without being prescriptive about how that is done.
Transportation Enhancements
TEA-21’s
enormously popular Transportation Enhancements program has yielded benefits for
thousands of communities, from small towns and rural counties to our nation’s
largest cities. Scenic America works
with the Rails to Trails Conservancy, the American Recreation Coalition, and
dozens of other groups to monitor and promote the program. Let me reinforce several recommendations
from our coalition. We believe that
Congress should:
Protect the current funding level and allocation
formula;
·
Improve obligation rates
in the states so that there is more timely expenditure of funds;
·
Keep the current
time-tested funding eligibility categories, including billboard removal and
control and acquisition of scenic easements; and
·
Do not open up this
program to a variety of other uses not in line with the original intent of the
program.
Environmental Streamlining
Recently
there has been much blame for project delay placed on our environmental laws --
the National Environmental Policy Act of 1969; the National Historic
Preservation Act, particularly Section 106; and the Department of
Transportation Act of 1966, particularly Section 4(f). These laws have ensured citizen
participation and thorough study of projects before they take place. Further, independent study of project delay
finds many other factors that contribute including lack of funds for personnel
to conduct reviews and to build projects.
We urge you in the strongest terms to approach the issue of
environmental streamlining as an administrative and appropriations issue, not
as a legislative issue in TEA-21. We
offer to work with you to examine the kinds of projects now subject to
intensive environmental review that might receive less intensive review; and to
make funding available to the states so that they have adequate personnel to
review complex projects. Through this process,
we can achieve economies for the taxpayer, timely benefits for communities,
opportunities for all stakeholders to participate in the planning and design
process, and insurance that the study process preceding public investment is
thorough and based on expert evaluation.
Let’s achieve all we can through administrative streamlining before we
consider amending laws that have served our country well.
Billboard Control
Finally,
we urge you to resist any efforts by the billboard industry or others to tamper
with any aspects of current federal billboard laws within TEA-21
re-authorization.
This
is not because we support current federal law and administration of billboard
control through the misnamed Highway Beautification Act (HBA) or the unfunded
Bonus Act. The HBA is so bad and so
distorted from Lady Bird Johnson’s original intent that it needs its own
studies, hearings, Congressional review and new legislation. The billboard
industry has made a joke of this law by thwarting communities from cleaning up
their visual environment, eroding rural visual quality on our federal highways,
permitting cutting of public trees on public lands for private billboard
visibility, and much more. I will
submit for the record our 1997 report, The Highway Beautification Act: A
Broken Law that documents the problems to which I have referred.
Senator
Jeffords introduced the last effort to reform the HBA in 1997 and we are
grateful for his interest in this issue.
Vermont, one of four billboard free states, has been well-served by not
having to deal with the billboard industry since 1978. We believe that the TEA-21 re-authorization
process is not the venue for making any changes to current billboard law. Instead, we hope that Congress will consider
undertaking a thorough, fair, and open reexamination of federal billboard
control measures after TEA-21 re-authorization.
Conclusion
ISTEA
and TEA-21 have led to stronger communities; transportation systems that work
with the land, not against it; and a reawakening of a sense of place throughout
both rural and urban America. We urge
Congress to take those steps outlined at the beginning of this testimony as you
improve TEA-21 for the future.
I
thank you for the opportunity to share Scenic America’s views.