Mr. HARMSTON. The Governor said repeatedly to the county commissioners down here that they deserve a road and they should have a road so that they could administer their responsibilities, and we want a road. Mr. SKUBITZ. Do you want a road around the area or across the area? Mr. HARMSTON. My personal opinion is we want a road that goes through, across the Escalante. Mr. SKUBITZ. What is the Governor's position? Mr. HARMSTON. Well, I have not specifically addressed that particu-lar question to him. I have left that up to the highway department, feeling that is their responsibility. Mr. SKUBITZ. We would like to know just what the Governor's position is. Mr. HARMSTON. I will take this question back to the Governor and he will respond to you. Mr. SKUBITZ. Thank you. Mr. TAYLOR. None of the State witnesses have said they were speaking for the Governor. As far as you know, the Governor shares the views that have been expressed by the three of you. Is that correct? Mr. HARMSTON. The statement I made was discussed with the Governor and he authorized me to make it in the name of the department of natural resources and the responsibilities I have. Mr. TAYLOR. Now, I notice this statement has been made, that the State would be looking to Washington for more financial assistance. Of course, as a primary road, this road would be entitled to maybe 50-percent assistance at the Federal level. Did you have in mind more assistance than that? Mr. CHURCH. I assume this would be a secondary road and if it does qualify, which it probably would, for Federal aid secondary system, the Federal Government would then provide 75 percent of the funds, but in Utah, we are limited to approximately $2 million a year, secondary funds, and so we would have to look for some other types of special funding for this particular road; yes. Mr. LLOYD. Mr. Chairman Mr. TAYLOR. The gentleman from Utah. Mr. LLOYD. May I comment, Mr. Church? I know that there are great complexities in your job and I think you do it very well. It reminds me of a man who had a similar responsibility such as yours and was looking at some of the history in his State, I think in California, and he wrote this ditty. He said, "The windings in and the windings out, have raised in mind the serious doubt, as to whether the men who planned this route, were going to hell or coming out." [Laughter and applause.] Mr. CHURCH. Exactly right. (The statement of Mr. Church plus maps and letter to Mr. Taylor follow :) PREPARED TESTIMONY OF CLEM H. CHURCH, CHAIRMAN, STATE ROAD COMMISSION OF UTAH The Congress of the United States and the Legislature of Utah have charged the State Road Commission of Utah and the Utah State Department of Highways with the responsibility for planning, constructing and maintaining an overall road transportation network for the State of Utah. The news media reminds us of crowded conditions in many recreational areas. As the pressure of human usage mounts, our scenic and recreational heritage becomes more and more important. It seems at least equally important to provide recreational opportunities so important for the health of our citizens and the social health of our nation. It seems logical to me that, instead of making existing recreational centers more difficult of access by reservation systems and prohibitive fees, a more equitable arrangement might be provided if at least a modicum of additional recreational potential were to be made usable to the average citizen. Adequate roads and development are necessary if we are to utilize this resource. It seems fitting to consider this problem as we now consider revisions. We, therefore, suggest that: The Congress authorize the State of Utah to construct and maintain a two lane highway aligned to provide safe stopping sight distance with negotiable grades suitable for the operation of the largest recreational vehicle, and commercial vehicles destined for the area, to blend with the natural terrain so as to avoid any unnecessary scarring of the landscape. This access road to be constructed between Glen Canyon City and Bull Frog via the Hole-in-the-Rock area, on an alignment within the recreation area boundaries or close proximity northwesterly of the shores of Lake Powell. The State of Utah supports a joint study with other concerned governmental agencies to determine a feasible exact alignment and geometric standards to which the access road would be constructed, and agrees that adjustments pertaining to alignment, curvature and grade can be made if such an adjustment in standards reduces significantly the impact of the road upon the terrain. Nothing in these standards would preclude either the Secretary of the Interior or the State of Utah from constructing turnouts at scenic vistas. The access road constructed between Glen Canyon City and Bull Frog via Hole-in-the-Rock by the State of Utah will be kept open permanently for general public travel, and no fees or tolls shall be collected for such use. The State of Utah shall have full authority to regulate traffic and enforce the highway laws relating to highway use. Further, it is suggested that special consideration be given to special Federal funding for the construction of such roads by the State of Utah, and I think this is very important. Road access within and near the Glen Canyon National Recreation Area has been under study by the Utah Department of Highways since 1963 with opportunity for participation by all concerned Federal, State and local governmental agencies. We do not oppose further joint studies for roads in addition to those currently under consideration. Referring to section 8(a), the word consultation has caused concern among many Utah citizens. Apparently, the Congress has been reluctant to direct the State to take part in any study. We feel that the State of Utah should be as much a part of any study involving roads as any Federal agency. Toward this end, the State of Utah now stipulates that personnel from the Utah State Department of Highways shall be available as needed to participate in such a study. Some of the language in H.R. 13550 and in the testimony I am presenting is similar to an agreement between the Secretary of the Interior and the State of Utah pertaining to Utah State Route 24 within the borders of Capitol Reef National Park. This agreement, in effect for 11 years, has been the basis for cooperative actions between the two agencies and serves as a model for other actions. The State of Utah has constructed and improved scenic turnouts and other appurtenant developments for the National Park Service. An established working cooperation between the agencies is thereby demonstrated. To complement road access, it is suggested that the National Park Service be authorized and directed, with special consideration for funding to continue developments at Lees Ferry, Wahweap, Warm Creek, Gunsite Butte, Oil Seep Bar, Llewellyn Gulch, Hole-in-the-Rock, Bullfrog Basin, Halls Crossing, Castle Butte and Hite. The question is often raised as to the role which outdoor recreation as an industry (that is a complex of economic activities) can play in the economic development of Utah's southern counties; the creation of jobs, and the stimulation of public and private investment. The answer lies in the nature of the recreation industry and the assets and liabilities of the area. The outdoor recreation industry has two fundamental characteristics: first, it is resource based; and second, its enterprises are mainly trade and services. Each of these characteristics has significance in the Four Corners Recreational Area. The product of the industry, and outdoor recreational experience, must be consumed in the local area. This activity offers special opportunities to bring work to the unemployed of an area where the unemployed labor force has limited skills and lacks mobility to move to jobs elsewhere. This type of labor force is suited to serving the bulk of the recreation labor needs. Because of seasonal or other fluctuations, recreation businesses are often supplemental or seasonally complementary, to other income employment or farming. Four factors mainly determine the economic impact of recreation on a local area: (1) The recreational resource and its attractiveness, (2) The volume of visitors, (3) The intensity of expenditures, and (4) The degree to which the expenditures become income to the local area. The recreation region in southeastern Utah may be compared favorably with each of these factors. There are recreational resources in this area of such rare quality that their attractiveness spans the whole continent. Grand Canyon, Zion, Bryce Canyon, Capitol Reef, Canyon Lands, and Arches National Parks and Glen Canyon National Recreation Area are a few of the attractions that have received national acclaim. People are willing to visit and use our natural attractions and recreational facilities if they can get to them conveniently. For example, from January through October of 1971, about 49,000 people visited Natural Bridges National Monument. In the same period about 2.3 million visited Grand Canyon; 934.000 visited Zion National Park: 659,000 visited Glen Canyon National Recreation area; 239,000 visited Capitol Reef National Monument; 41,000 visited Rainbow Bridge National Monument; 54,000 visited Canyon Lands National Park, and 198,000 visited Arches National Park. Thus, Natural Bridges National Monument received about one percent of the 4.8 million area visits. For visitors on east-west trips the area is in an intercept position but lacks an integrated highway system. Because of this, the 300-mile long, 40-mile wide scenic corridor has generated visits as two separate recreational regions. Park areas on the western end of the corridor are provided with good connecting roads as are the park areas on the eastern end. To travel the 60 miles separating these highways a visitor must detour about 400 miles. The magnitude of visitor expenditures is less dependent on the nature of the resource and the volume of visitors than on the duration of their stay and the number and variety of opportunities for spending. The effects of variety in things to do, see, and buy are accumulative. The longer a visitor stays in the area the more services he will require. The more services and goods he is offered in the area, the more he is likely to buy. In addition, the more goods and services he is able to buy in the area the longer he is likely to stay. Where the attractions draw visitors from far away, as the Glen Canyon National Recreation Area does, it becomes necessary for them to spend a night in the area in order to enjoy its resources, thereby intensifying the opportunities for recreation industry. The impact will be a function of the variety of things to do which keeps the visitor there and the number of things he can find on which to spend his money. The Glen Canyon National Recreation Area is now in the embryonic stage of economic development. Limited services and goods are offered at a minimum of locations. Even here, however, it is possible to say that a visitor who brings his own bedroom (tent, camper or mobile home), provides his own groceries (purchased outside of the area), and does not buy gifts will spend $5.00 per hundred miles of driving and $5.00 for boat fuel every day he uses his boat. Because of this, we should think of millions of dollars of visitor expenditures when we quote hundreds of thousands of visitors. The ability of an area to retain the revenues arising from recreation expenditures as net income will determine the contribution of these expenditures to the economic base. If the required labor and labor skills are imported for the season, the local impact will be less than if the goods and services are locally produced, because the seasonal immigrating labor force will tend to spend much of its income in its home town away from the recreational area. Imported goods have a similar effect, payments for such items leak out of the area and, therefore, do not generate production of additional goods and services to provide employment and income to benefit the community. This raises the question, where does the money flow? Given a substantial recreation expenditure, the impact must be somewhere. Generally, the benefits flow to the nearest towns which can supply the goods and services. It is a question, therefore, of location, access, and nature of the surrounding economies. In the Four Corners Recreational Region, the points of basic supply are varied and sometimes distant. St. George is close to Zion National Park but far from Glen Canyon National Recreation Area and the Grand Canyon. Moab, on the opposite end of the recreation corridor, supplies basic goods and services to visitors of the nearby Arches National Park and Canyon Lands National Park as well as those traveling as far as Natural Bridges National Monument. Richfield is the supplier of goods and services to visitors entering the corridor from the north and those purchasing items at Capitol Reef National Park. To the extent that these supply points either produce these goods and services or buy from the Wasatch Front, Utah retains the impact from their income. How much impact? The Utah State Tax Commission estimated that similar statewide tourist expenditures in 1970 turned over 31⁄2 times and generated about 18¢ tax on each tourist dollar spent. Accordingly, millions of dollars of tourist expenditures mean multiple millions in sales and hundreds of thousands of dollars in tax. Where unemployment and under-employment are high and the area has a relatively small production of “export”, the impact of a vigorous tourist trade is appreciable. The small narrowly based economic structure in Utah's southeastern counties can benefit from the 100-125 jobs that might result from every $1,000,000 of tourist expenditure.1 If economic impact is dependent initially upon the drawing power of an area's attractions, this, in turn, is dependent upon the access provided to it and permitted within or through it. A highway between Glen Canyon City and Moab will, at a minimum, open up 200 miles of unrivaled scenery. It will connect two of the nations most spectacular recreational areas into the largest, and most complete recreational region in the United States. The quality, capacity and continuity of the roads in his area will affect the level of visitation and hence the possibilities for economic impact. Recreational sites in the Golden Circle area have been set aside by federal, state and local governments in an attempt to meet the ever increasing demand most every American makes to occupy his own little piece of pristine land for a day, a week or a month. It is at least a temporary escape from the split-level trap. Trends toward shorter work weeks, consequent increases in leisure time and a rapidly rising population emphasize the need for better accessibility to recreational areas. The nation is building billion dollar roads leading to other congested places just like those they left behind. Such roads are essential to America's progress and survival, but we also have a responsibility to build roads to places that are different. We endorse the concept of officially establishing a Glen Canyon National Recreation Area by an Act of Congress including provisions authorizing the State of Utah to construct roads to and through the area. 1 Recreation as an Industry, Research Report No. 2, the Appalachian Regional Com. mission, 1966. |