Joint Travel Committee Minutes for Meeting May 1 & 2, 2007

Committee Meeting Information

May 1 & 2, 2007

Antler Inn

Jackson, Wyoming

Committee Members Present

Senator Bruce Burns, Co-Chairman

Representative Pat Childers, Co-Chairman

Senator Pat Aullman

Senator Mike Massie

Senator Jayne Mockler

Representative Kermit Brown

Representative Kathy Davison

Representative Patrick Goggles

Representative Jerry Iekel

Representative Allen Jaggi

Representative Jim Slater

Representative Bill Thompson

Committee Members Absent

Senator Hank Coe

Representative Bernadine Craft

Legislative Service Office Staff

Lynda Cook, Staff Attorney

Others Present at Meeting

Representative Keith Gingery

Please refer to Appendix 1 to review the Committee Sign-in Sheet
for a list of other individuals who attended the meeting.

Joint Travel, Recreation, Wildlife and Cultural Resources Interim Committee Meeting Summary (May 1 & 2, 2007)

The Joint Travel, Recreation, Wildlife and Cultural Resources Interim Committee met in Jackson to considerer issues related to state parks and cultural resources, state historic preservation office and game and fish.

The committee heard testimony regarding the needs of the state historic preservation office, the future funding needs of the department of state parks and cultural resources, potential for a new state veterans' museum, the state elk feedground program and future funding needs of the game and fish department.

Call To Order (May 1, 2007)

Co-Chairman Bruce Burns called the meeting to order at 8:00 am. The following sections summarize the Committee proceedings by topic. Please refer to Appendix 2 to review the Committee Meeting Agenda.

Approval of Minutes

Minutes from the November, 2006 Committee meeting were approved.

State Historic Preservation office

Milward Simpson presented a brief introduction to the state historic preservation office. The bulk of the topic will be addressed at the next meeting.

Mary Hopkins provided a power point presentation about the structure of the office. (Appendix 3).

The program oversees the state's entries in the national register of historic places, coordinates with local government preservation offices, oversees federal income tax incentives for commercial property owners, conducts section 106 reviews and consultations, inventories and maintains a database of knowledge, does historic preservation planning and provides outreach and assistance to citizens. The relationship with local government offices is one of granting money and providing assistance. The national park service provides the funding and oversight for the grants and programs through the National Historic Preservation Act, 36 CFR Part 61.

SHPO does not require cultural resource inventories, conduct on the ground inventories, make final determinations on whether lands are eligible for national historic site status or approve or permit projects. Ms. Hopkins noted that the myth that the office requires full scale excavation of sites when even one archeological object is found is not true. There was discussion about the process of obtaining section 106 reviews. The project proponent hires a consultant to do a site assessment, the consultant provides the report to the federal agency and they ask the SHPO to review and approve the assessment. SHPO makes a recommendation to the national HPO who makes the final decisions. If the state and federal agency disagree about the recommendations, the decision can be appealed to the NHPO.

It was noted that if the agency determines that there is a federal action then private lands can be included in the inventory being reviewed.

SHPO is funded 60% from federal funds, 20% from general funds and 20% from fees.

The office's workload is driven by increased energy production. The problem is that the federal government requires these 106 reviews but the funding has not changed in many years to allow the department to increase staff. One thing that needs to change is the federal funding formula. The formula is based on the population, size of the state and number of buildings in the state, not the number of projects or workload.

The department will be holding statewide meetings. See Appendix 4. The department also provided an Executive summary of the historic context development plans. Appendix 5.

The committee asked the department to come back with:

More information on the need for historic context development
Need for additional staff
Ideas for providing more grants to certified local governments (CLG’s)

Finally, Ms. Hopkins described the presentation she provided to the Wyoming congressional delegation regarding their needs.

State Parks and Historic Sites Fee Structure

Milward Simpson introduced his staff. With him were Linda Reynolds, Pat Green, Todd Thibodaux, Joe Bonds, Bill Westerfield, Julie Huntley, and Commissioner Karen Hatterly.

Mr. Simpson gave an update on the purchase of the Unicover building. State Parks and the Dept. of Probation will be moving into the building. They will be creating a public curation exhibition. Roger Joyce testified that the building is great for their needs.

Mr. Simpson testified that their presentation is about the trends that impact their system, the needs that are arising and finally the change in fees necessary to achieve those results.

Joe Bonds provided a history of the agency and a background for the charge for this legislative interim. The department’s budget for state parks, historic sites and trails is $25.5 million dollars. Of that only $16 million is state general funds. They have 88 full time employees and 87 part time/seasonal employees. Most of the full time employees are in field positions. The department manages 11 state parks, 1 state recreation area, 1 archaeological site, 1 petroglyph site and 23 historic sites. Facilities include 14 campgrounds with 1465 campsites, 2 lodges, 3 marinas, 2 swimming pools, 2 hotels, 677 buildings or structures and 239 miles of roads. Many of the state parks are on federal property or property of other governmental agencies.

In 2006 state parks served 2.5 million visitors, a 4% increase over 2005. Based on a 2004 survey (Appendix 6), more than half are non-residents. 63% are repeat customers who make more than 8 visits per year. 62% said that the state park was their destination and they stay an average of 42 hours.

With respect to state historic sites, almost 80% of visitors are non-residents. Only 27% were there as a destination alone. Most stop on the way to other destinations.

Total economic impact in 2004 was $39.7 million dollars, including money spent on gas, groceries, lodging, etc. This impact is above and beyond the numbers provided by the department of tourism.

Annual funding for capital construction comes from:

Motorboat gas tax - $500,000 – W.S. 39-17-111
State Park Road Account - $250,000 – W.S. 24-24-101, 102 and 39-14-801(e)(iv)
Enterprise fund – fees collected pursuant to W.S. 36-4-121(h) - $1,340,000

Todd Thibodaux presented the needs of the agency over the next several years. The department is tasked with maintaining sites for the safety and enjoyment of the visitors. They need to provide the amenities that people want. In 2004 the department did an extensive survey of what visitors want. They also talked to people that did not visit the sites. The three activities the public said they participated most in were relaxing, wildlife viewing, and hiking. It was a surprise that swimming and boating were not the biggest draws. Amenities they wanted were improved camping facilities, trails and interpretative centers. Cultural heritage tourists are the largest and fastest growing tourist group in the country. They also spend more than other tourists. They are looking for historical experiences with hands on activities.

The department looked at what other states (competitors) are providing. Surrounding states are all providing flush toilets and showers. They all have camping cabins and visitor centers. We are losing visitors to surrounding states. Rep. Brown asked the department to find out from South Dakota whether increasing the amenities in parks like Angostura State Park have increased the number of non-resident visitors and/or decreased the number of in state visitors. There was a great deal of discussion about whether it is a good goal to develop state parks to encourage increased visitation by people who want those amenities to the detriment of those who want primitive camping. Pat Greene pointed out that Wyoming is out of balance in that we are seriously lacking in non-primitive facilities. Rep. Thompson stated that what we really need to do is look at what is really needed and what will be lost in satisfying those needs.

Mr. Thibodaux provided a history of the department’s requests for major maintenance funding. Much of the money needed for interpretation was able to be met with capital construction money. However, now that the buildings are restored, they have no interpretation inside of them.

With respect to enhancements, the department is looking at specific improvements including flushing toilets, showers and camping cabins. Other enhancements are needed for improved hiking trails, visitor centers and entrance structures. Visitor centers serve law enforcement purposes in that you can explain to people why the rules are important.

To summarize their needs, the department would like: $26 million for road maintenance, $2.4 million for facility maintenance, $2.8 million for interpretation and $50 million for enhancements. Senator Massie asked the department for a breakdown of how much of this would be needed for a visitor center at the Carissa Mine.

Bill Westerfield presented a breakdown of the fee structure. In 1992 camping fees and daily use fees were implemented in the big reservoir parks. In 1999 the fees were expanded to all parks and year round. In 2003 daily use fees for non residents were reduced to comply with a federal requirement that non-resident rates could not exceed double resident rates. Land and water conservation fund grant monies come with that string attached.

Mr. Westerfield provided a comparison of fees charged in surrounding states. (Appendix 7).

The department provided the following options for funding models:

Increase user fees
Issue State Parks bond
General Fund loan
Eliminate the $5 second vehicle permits
Eliminate annual permits
Vehicle registration fees
Enhance facilities and amenities with added charges
Create a trust fund
Real Estate Transfer tax
Lottery funding
Sin and gas taxes.

In the 2004 survey 70% of park users and 80% of historic site users said they would be willing to pay more in user fees. The department’s proposal would be to double all the fees (historic site fees to $5) and eliminate the second vehicle permits. He also noted that RV fees charged in Wyoming go to WyDOT.

Collaborative Partnerships for Managing Wyoming’s Cultural Legacy – Legend Rock Petroglyph Site

Carolyn McClellan, Chief of the Division of Cultural, Paleological Resources and Tribal Consultation, BLM, provided a presentation on how the BLM has worked with the state parks department to develop the Legend Rock Petroglyph Site. (Appendix 8)

Executive Order 13287 – The Preserve American Initiative - was enacted March 3, 2003 and requires federal agencies to take specific action to build preservation partnerships, improve agency planning and promote preservation through heritage tourism. The BLM gets involved to support regional economic development, preserve heritage assets and encourage appreciation of history and values.

The group develops a site steward program for long term management of a site. They develop site maps and educational materials and host local experts to inform the public about the site. They are working on a documentary on the collaborative efforts to develop the Legend Rock site. However, they are not going to publicize the efforts until infrastructure is in place to protect the site.

Kevin Skates, Superintendent of Hot Springs State Park, testified regarding the management challenges for protecting the site. The site is unstaffed and there is no separate budget for the site. It is difficult to protect the site from vandalism and theft due to its isolated location. There is also the problem of accessibility for disabled people. There was some vandalism recently so the site is currently closed to the general public. Researchers can get to it with special permission.

The partnership includes BLM, the state and various other governmental and non-governmental organizations. BLM is also coordinating consultation with the tribal entities for help with interpretive efforts.

The petroglyphs date from 11,000 years ago to several hundred years ago.

Neffra Matthews, BLM Geographer, showed the committee the location of the site. They are mapping the site through photogrammetry. The software provides a base map of the entire cliff and the ability to study the pictures in three dimensions. They are also taking stereo photographs. The advantage is to allow the resource to be studied without the degradation that occurs by bringing the people to the place.

State Veteran’s Museum

Milward Simpson testified regarding the history of the problems with the current state veteran’s museum in Casper. He introduced Larry Bartlebort, executive director of the veteran’s commission.

The committee discussed the need to take a longer view of what military history is special to the state and what a true state veteran’s museum should look like.

Mr. Bartlebort provided an overview of military history and Wyoming’s influence in that history. (Appendix 9). The overview provided a list of examples of items that would be appropriate for a military museum.

Stan Lowe gave the committee a history of the current veteran’s museum. He provided a brochure showing the murals in the building. (Appendix 10). Mr. Lowe provided letters of support from Natrona County commissioners, City of Casper and Casper chamber of commerce (Appendix 11).

Beverley Homes organized the Wyoming Militia Historic Society. They have a collection of military items and written records going back to 1870. The items have been in storage for the last 5 years. She testified that the state needs a place to display all these things for the benefit of everyone.

The committee discussed the focus of this study. They are looking at the issue with a clean slate – what needs to be protected, how it can best be protected and displayed. The goal is to come to consensus about the steps to take and present this plan to management council for support. Mr. Bartlebort listed many sites throughout the state and the various items that could be displayed. Mrs. Taylor from FE Warren Air Force museum testified in support of the preservation of the military heritage. There are over 3500 artifacts in the state museum alone. Testimony was given that there are approximately 30,000 artifacts in various places in the state. Sen. Massie asked what number of those objects would be worthy of curating in a very expensive climate controlled environment.

The committee discussed where the department should direct their efforts. It was important to have an inventory of what is currently out there to even know where to start. Senator Massie asked what the goal is. If it is historical preservation then it is a different course then if it is to honor military veterans. Milward Simpson stated that they see it as a military department function. The committee asked the department for a better idea of inventory and expertise as to what the needs will be for a museum and storage.

The committee set the next meeting for July 16 & 17 in Riverton.

The meeting recessed.

Game and Fish Department

The meeting reconvened at 8:00 am, May 2, 2007, with a tour of the South Park State Elk Feedground. Bernie Holtz and other game and fish department staff explained the challenges facing the game and fish department in managing the feedground program. He showed the committee the facilities and provided written testimony about those challenges. (Appendix 12). Upon return to the committee meeting room Mr. Holtz provided a presentation regarding the effects of wolves on feedground operations. Seventeen of the state’s 22 feedgrounds have experienced wolf activity. The conflicts occur when the dispersal of elk by wolves causes problems in the distribution of hay and conflicts with cattle and vehicles. Additionally, when elk disburse to cattle lines they risk spreading brucellosis to the livestock. He explained on which feedgrounds they would anticipate doing wolf control actions.

Game and Fish Department Funding

Terry Cleveland explained the financial status of the department and the need for alternative funding sources. (Appendix 13) He explained that the public supported the recent increase in license fees, but they cannot be asked to continue to pay for species that are not hunted. The state needs to take a proactive stance on species of concern to avoid letting them get listed on the endangered species act. The department needs a separate source of income to fund those programs that benefit the state as a whole.

They are proposing to ask for funding of approximately $5million dollars to fund and enhance the existing non-game species programs. They believe they need to expand those programs in order to ensure that species do not get listed. They are not asking for wolf or grizzly bear management money yet. There was discussion about the failure of the alternative funding bill and the annual cost of living index fee increase bill in the last session.

Kathy Frank provided a presentation showing the trends in income and expenses of the department. License sales have declined over the last 20 years. Inflation has increased significantly. Disease issues, access issues, habitat issues, energy impacts and federal policy decisions will continue to result in increased management costs. Interest income has declined. In the last fifteen years the department has begun to rely on many different and new sources of income. They have also made large changes in expenditures over the last ten years.

Ms. Frank explained how the department’s budget process works. The budget goes through internal review, the commission, then through the governor’s office and to the legislature. She described how the department uses a cost accounting system that is breaks every cost out by the use. The budget is very detailed and is available to anyone who would like to review it. They originally maintained the cost accounting system so they could bill out the costs through federal grants. But now it is very useful to explain their budget to those people who say they want accountability.

Comprehensive Wildlife Conservation Strategy

John Emmerich presented an explanation of what Wyoming’s comprehensive wildlife conservation strategy is. The document was designed to identify the species most in need of conservation and identify factors impacting management of those species. This is part of the sensitive and non-game species programs that need to be funded through alternative sources from hunting and fishing license fees. (Appendix 14). He described how doing the inventory work on Pygmy rabbits and swift foxes let them forestall potential listing decisions because they found that they were actually fairly abundant.

Senator Massie asked for more additional details regarding the species on the list and a breakdown of the dollars that are needed.

Pam Deul, Nature Conservancy, testified in support of the program. She urged the committee to help the Game and Fish department do every thing they can to avoid listings.

Chairman Childers asked the department to put together a summary of their presentation and a cover letter to the Joint Appropriations Committee to ask that they get on the agenda to support a budget amendment for the department. Senator Massie also suggested that the department should sit down with legislators and explain their needs in advance of the session.

Meeting Adjournment

There being no further business, Co-Chairman Pat Childers adjourned the meeting at 2:40 p.m.

Respectfully submitted,

Bruce Burns, Co-Chairman Pat Childers, Co-Chairman

Appendix	Appendix Topic	Appendix Description	Appendix Provider
1	Committee Sign-In Sheet	Lists meeting attendees	Legislative Service Office
2	Committee Meeting Agenda	Provides an outline of the topics the Committee planned to address at meeting	Legislative Service Office
3	SHPO	Demystifying the State Historic Preservation Office	SHPO
4	SHPO	Statewide Listening Tour Dates	SHPO
5	SHPO	Historic Context Development Plan	SHPO
6	State Parks	Challenges & Opportunities II	State Parks
7	State Parks	Regional Comparisons	State Parks
8	State Parks	Collaborative Partnerships for Legend Rock	Carolyn McClellan
9	State Veterans' Museum	Handout Packet	Larry Bartlebort
10	State Veterans' Museum	Brochure for Veterans' Museum	Stan Lowe
11	State Veterans' Museum	Letters of support	Casper Chamber of Commerce
12	Game & Fish	Elk Feedgrounds	Game & Fish
13	Game & Fish	Funding Needs	Game & Fish
14	Game & Fish	Implementing Wyoming's Comprehensive Wildlife Conservation Strategies	Game & Fish