Senate Report 105-55
(continued)
FEDERAL-AID HIGHWAYS
(Limitation on Obligations)
(Highway Trust Fund)
Appropriations, 1997
\1\$18,933,630,000
Budget estimate, 1998
20,170,000,000
Committee recommendation
21,800,000,000
\1\Excludes reductions for TASC and awards pursuant to sections
321 and 346 of Public Law 104 205. Includes limitation available
pursuant to section 310 of Public Law 104 205.
The administration's proposal of $20,170,000,000 includes previously
appropriated or authorized accounts other than emergency relief and
minimum allocation.
In addition to programs covered by the obligation ceiling, there are
activities that are exempt from the ceiling. Under the administration's
proposal, it is assumed that $1,510,331,000 is outside the limitation
which brings the administration's program total to $21,680,331,000.
The Committee recommends an obligation ceiling of $21,800,000,000 for
the regular Federal-aid formula program. In addition, the programs
outside the obligation ceiling are estimated at $1,390,600,000 for a
total program level of $23,190,600,000.
COMPARISON OF FEDERAL HIGHWAY TRUST FUND HIGHWAY ACCOUNT RECEIPTS ATTRIBUTABLE TO THE STATES AND FEDERAL-AID APPORTIONMENTS AND ALLOCATIONS FROM THE HIGHWAY ACCOUNT--FISCAL YEARS 1957 96\1\
[Dollars in thousands]
State Payments into the fund\2\ Apportionments and allocations from the fund\3\ Ratio of apportionments and allocations to payments
Fiscal year 1996 Cumulated since July 1, 1956 Fiscal year 1996 Cumulated since July 1, 1956 Fiscal year 1996 Cumulated since July 1, 1956
Alabama $490,909 $6,298,458 $316,382 $7,012,397 .64 1.11
Alaska 54,785 651,552 216,054 4,372,965 3,94 6.71
Arizona 374,857 4,529,518 246,553 5,431,193 .66 1.20
Arkansas\4\ 323,475 4,202,837 244,959 4,123,582 .76 .98
California 2,199,250 32,995,155 1,524,640 31,388,305 .69 .95
Colorado\4\ 275,808 4,099,483 227,438 5,433,106 .82 1.33
Connecticut 225,127 3,741,434 357,783 6,636,912 1.59 1.77
Delaware 64,854 948,933 77,613 1,421,581 1.20 1.50
District of Columbia 28,480 568,788 83,819 2,375,748 2.94 4.18
Florida\4\ 1,152,284 14,265,018 729,920 12,634,505 .63 .89
Georgia 874,372 10,316,962 484,351 9,525,763 .55 .92
Hawaii 58,505 822,840 117,986 3,160,606 2.02 3.84
Idaho 122,978 1,552,901 129,936 2,714,224 1.06 1.75
Illinois\4\ 780,121 13,283,342 700,176 14,776,961 .90 1.11
Indiana\4\ 579,993 8,664,317 391,694 7,491,417 .68 .86
Iowa 240,302 4,324,930 213,998 4,992,745 .89 1.15
Kansas 257,994 4,030,973 212,340 4,447,606 .82 1.10
Kentucky 430,912 5,519,944 248,566 5,837,444 .58 1.06
Louisiana 393,851 5,835,556 242,787 7,301,405 .62 1.25
Maine 117,523 1,742,058 119,283 1,978,394 1.01 1.14
Maryland 376,341 5,584,561 270,851 8,266,776 .72 1.48
Massachusetts\4\ 416,169 6,446,483 667,643 10,993,298 1.60 1.71
Michigan 775,551 11,824,298 486,328 10,580,301 .63 .89
Minnesota 270,499 5,567,477 292,046 7,141,040 1.08 1.28
Mississippi 296,925 4,054,149 190,305 4,034,289 .64 1.00
Missouri 573,654 8,287,960 380,213 7,887,481 .66 .95
Montana 107,069 1,549,726 166,251 3,707,949 1.55 2.39
Nebraska 173,648 2,595,434 138,715 3,000,203 .80 1.16
Nevada\4\ 139,554 1,619,737 133,843 2,526,690 .96 1.56
New Hampshire 92,132 1,241,184 95,641 1,755,548 1.04 1.41
New Jersey 583,330 9,309,786 498,402 9,536,603 .85 1.02
New Mexico\4\ 188,498 2,548,442 173,241 3,473,829 .92 1.36
New York 972,730 15,944,304 1,111,112 19,336,458 1.14 1.21
North Carolina 705,748 9,340,568 453,950 7,940,104 .64 .85
North Dakota 78,695 1,174,634 125,483 2,272,266 1.59 1.93
Ohio 799,378 14,133,108 611,090 13,044,990 .76 .92
Oklahoma 378,306 5,511,181 245,399 4,721,585 .65 .86
Oregon\4\ 292,450 4,200,078 344,001 5,074,565 1.18 1.21
Pennsylvania 912,823 14,584,905 836,714 16,728,859 .92 1.15
Rhode Island 62,043 1,025,615 107,781 2,284,140 1.74 2.23
South Carolina 396,711 5,008,927 232,438 4,391,876 .59 .88
South Dakota 74,618 1,239,920 131,593 2,436,921 1.76 1.97
Tennessee 560,320 7,440,407 329,857 7,361,303 .59 .99
Texas 1,705,426 24,629,267 1,012,253 20,874,751 .59 .85
Utah 191,866 2,255,867 135,519 3,686,132 .71 1.63
Vermont 65,697 795,810 75,435 1,713,797 1.15 2.15
Virginia 639,538 8,187,423 403,234 9,299,282 .63 1.14
Washington 431,813 5,830,648 438,897 9,174,921 1.02 1.57
West Virginia 180,544 2,611,755 212,956 5,220,120 1.18 2.00
Wisconsin 443,212 6,431,327 318,906 5,683,614 .72 .88
Wyoming 102,198 1,328,479 126,284 2,572,212 1.24 1.94
------------------ ------------------------------ ------------------ ------------------------------ ------------------ ------------------------------
Total 22,033,866 320,698,459 17,632,659 359,778,762 .80 1.12
American Samoa 4,149 49,163
Guam 13,693 134,011
Northern Marianas 4,160 33,340
Puerto Rico 76,811 1,402,422
Virgin Islands 21,810 145,856
------------------ ------------------------------ ------------------ ------------------------------ ------------------ ------------------------------
Grand total 22,033,866 320,698,459 17,753,282 361,543,554 .81 1.13
\1\Payments into the fund include only the net tax receipts deposited in the highway account of the Federal highway trust fund. Excluded are motor fuel taxes transferred to the ``Mass transit'' account of the highway trust fund (1 cent per gallon from April 1, 1983, through November 30, 1990, 1.5 cents per gallon until September 30, 1995, and 2.0 cents per gallon thereafter); the 0.1 cent per gallon tax dedicated to the leaking underground storage tank trust fund beginning January 1, 1987 and ending December 31, 1995; the tax designated for deficit reduction (2.5 cents per gallon from December 1, 1990, through September 30, 1993, 6.8 cents until September 30, 1995, and 4.3 cents thereafter); and the tax from motorboat use of gasoline transferred to the aquatic resources trust fund and the land and water conservation fund.
\2\Total Federal highway trust fund receipts are reported by the U.S. Department of the Treasury. Payments into the highway trust fund attributable to highway users in each State are estimated by the Federal Highway Administration. Includes revenues from highway-user taxes only.
\3\Includes all funds apportioned or allocated from the highway trust fund except for the following programs: Indian reservation roads, highway safety information, and local transportation assistance. These programs are either administered by other Federal agencies or are treated as administrative funds and cannot be easily attributed to individual States. Obligations are used to represent allocations for alcohol safety incentive grants and the Woodrow Wilson Bridge.
\4\Data for these States will be revised. Other States may also change, if revised data is provided to FHWA.
BRIDGE DISCRETIONARY FUNDS
In the past, the Committee has directed the Secretary of
Transportation to give priority designation, consistent with existing
criteria, to several bridges that have extremely low rating factors and
which serve as major links for both intrastate and interstate commerce
and which directly impact the economic development of an area. Current
law reserves $60,500,000 for discretionary bridge projects.
The Committee directs FHWA to give priority consideration to the
bridge over the Missouri River at Yankton, SD; the Cooper River bridges
in Charleston, SC; bridges on I 15 in Utah; and the Kimball and Silver
Creek junctions on I 80 in Utah; and the Bill Emerson Memorial Bridge in
Cape Girardeau, MO.
TIMBER BRIDGE
Current law also reserves discretionary highway timber research and
demonstration program funding. Consistent with the criteria established
in section 1039 of Public Law 102 240, $1,000,000 is available for
research grants and information transfer and $7,500,000 is available for
construction grants. The Committee directs that, out of construction
grants, $2,000,000 be available for the covered bridge restoration
project in Vermont.
DISCRETIONARY INTERSTATE 4 R
Current law reserves $65,000,000 of national highway system funds for
discretionary allocation for projects to resurface, restore
rehabilitative, or reconstruct Interstate highway segments. The
Committee directs FHWA to give priority consideration to widening of I
15 in Nevada from I 215 to SR 146, I 15 reconstruction from 10800 south
to 600 north in Utah, the University Avenue/I 15 interchange
reconfiguration in Provo, UT, and the Sunset Way interchange on I 90 in
Issaquah, WA.
FEDERAL LANDS HIGHWAY PROGRAMS
Consistent with section 204 of title 23 United States Code, which
authorizes the Federal Lands Highways Program, the Committee directs
that priority consideration be given the following projects:
straightening of 18 miles of BIA Route 1281 (Snake Road) in Florida,
upgrading the SR 160/Pahrump Highway in Nevada, and construction of an
access road in Snowbasin within the Wasatch National Forest, UT.
The Committee is concerned about the fact that the distribution of
Federal lands funds among the States bears very little relationship to
the proportion of Federal lands within the States or regions of the
country.
The Committee is concerned about responsibility for maintaining the
38-mile portion of Beartooth Highway from the Montana-Wyoming border to
the northeast entrance of Yellowstone National Park. The road, which is
closed to travel in the winter months due to excessive snow conditions,
is completely surrounded by Custer and Shoshone National Forests. The
Committee is concerned about responsibility for snow removal in the
spring. Snow removal is a necessary maintenance requirement to open the
road prior to Memorial Day each year.
Although responsibility has historically been assumed by the National
Park Service, negotiations this year between Montana and Wyoming, the
Park Service, and the National Forest Service indicated that none of the
entities has the resources to assume snow removal responsibilities. The
Committee urges FHWA to work to resolve this issue among the parties to
ensure that this critical road is opened to traffic before Memorial Day
next year.
In addition, the Committee urges FHWA to work with the Department of
the Interior and the State of Montana to ensure that snow removal needs
on the Going-to-the-Sun Road in Glacier National Park, MT, are met.
INTERSTATE DISCRETIONARY
Under the ISTEA highway authorization, the final set-aside of funds
for the Interstate Discretionary Program occurred in fiscal year 1995.
As of February 28, 1997, $61,247,428 of these funds were available for
distribution which is expected to occur in fiscal year 1998.
FERRYBOAT AND FACILITIES
Current law provides $18,000,000 for ferryboat and facilities
construction. Within this amount, the Committee directs that $6,390,000
be available for the Hollis-Craig-Ketchikan ferry in light of the fact
that the Committee is recommending an earlier designation of FTA New
Start funds for this project be deleted since the project is more
appropriately funded in this account. The Committee further directs that
FHWA give priority consideration to the following projects: purchase of
a ferryboat for Taney County, MO; improvements to the North Carolina
State ferry system; rehabilitation of the multimodal ferry terminal in
Clinton, WA; and return to service of the Nobska ferry for operation
between New Bedford, MA, and Martha's Vineyard and Nantucket. With
respect to the Nobska project, the Committee urges FHWA to reconsider
the eligibility of the Nobska provided that it remain in service to the
public and that it remain governed by its previous agreement with the
Commonwealth.
SCENIC BYWAYS PROGRAM
Current law provides $14,000,000 for planning, design, and
development of State scenic byway programs. The Committee directs FHWA
to give priority consideration to the safety improvement program on
Highway 101 around the Olympic Peninsula in Washington State.
OTHER
Railroad/highway safety project--Lincoln County, MS .--For the
purpose of constructing an overpass to improve access and enhance
highway/rail safety and economic development at an industrial park site
in Brookhaven in Lincoln County, MS, the State of Mississippi may use
funds previously allocated to it under the transportation enhancements
program, provided that the State would otherwise be unable to use the
funds for transportation enhancement projects consistent with current
law.
RIGHT-OF-WAY REVOLVING FUND
(Limitation on Direct Loans)
(Highway Trust Fund)
Appropriations, 1996 ...........................
Appropriations, 1997 ...........................
Committee recommendation $8,000,000
The Federal-Aid Highway Act of 1968 authorized $300,000,000 for the
establishment of the right-of-way revolving fund. This fund is utilized
to make cash advances to the States for the purpose of purchasing
right-of-way parcels in advance of highway construction and thereby
preventing the inflation of land prices from causing a significant
increase in construction costs. When right-of-way acquisition has been
made and highway construction is initiated, the State becomes eligible
for Federal grants under the various Federal-aid highway authorizations.
At the point when progress payments are made to the State for
construction, the State in turn reimburses the revolving fund for
advances made to that State for right-of-way acquisition. Utilizing this
method of funding, all reimbursements made to the revolving fund may be
reallocated to other States requiring advances.
The administration requested a prohibition on further obligations for
1998. The Committee has included bill language to allow for the
obligation of net reimbursements, that is when repayments exceed other
costs. It is estimated that $8,000,000 is necessary to cover the subsidy
costs of the new, net loans.
MOTOR CARRIER SAFETY GRANTS
(liquidation of contract authorization)
(Highway Trust Fund)
Appropriations, 1997 $74,000,000
Budget estimate, 1998 90,000,000
Committee recommendation 85,000,000
This program was first authorized by the Surface Transportation
Assistance Act of 1982. It provides grants to States for improved
enforcement of Federal and State motor carrier safety rules. It has been
shown that added enforcement of truck safety rules reduces truck-related
accidents and fatalities. The major objective of this program is to
reduce the number and severity of accidents involving commercial motor
vehicles.
The Committee recommends a liquidating cash appropriation of
$85,000,000.
LIMITATION ON OBLIGATIONS
The Committee recommends a limitation on obligations of $84,300,000
for motor carrier safety grants. This is an increase of $6,075,000 over
the 1997 enacted level and a decrease of $15,700,000 below the budget
request. The Committee recommends the following changes to the budget
request:
Safety performance incentive grants -$3,500,000
State training and administration -200,000
Information systems and analysis -12,000,000
-15,700,000
Safety performance incentive grants .--The Committee favors a
performance-based allocation formula for the MCSAP which would provide
maximum flexibility to the States, while still maintaining the safety
achievements of the current program. To encourage the FHWA and the MCSAP
States to complete the necessary rulemaking and program changes to
achieve this objective, the Committee recommends $4,000,000 for safety
performance incentive grants. The Committee looks forward to reviewing a
final regulation amending the current allocation formula and program
structure of the MCSAP.
State training and administration .--The Committee has provided
$800,000 for State training and administration, which is $200,000 below
the administration's request. The Committee has increased the basic
grants to States, which will allow States to assume a larger role in
training their officers.
Information systems and analysis .--The Committee is aware that FHWA
is finding many examples where its information systems are lacking data
on crashes involving specific commercial motor carriers. This
information is of critical importance in targeting problem operators and
in reducing the number of unnecessary audits to compliant carriers. To
this end, the Committee has provided $1,000,000 to be used by the States
to improve accident reporting.
Commercial vehicle information system .--The Committee has provided
$3,000,000 to help the States implement the commercial vehicle
information system. The Committee has increased the amount provided for
this activity to respond to the increased number of States that want to
participate in this successful program. FHWA shall prepare a report to
both the House and Senate Committees on Appropriations before January 1,
1998, detailing the current costs and benefits of investments in the
CVIS program.
Driver program initiative .--The Committee has provided $1,000,000
to address various driver challenges affecting the driver licensing
component of commercial vehicle safety. These moneys can be used to
improve data systems regarding driver records, transmission of judicial
decisions needed by State licensing agencies, and State licensing and
testing processes. Moneys may also be used to assist the States in
meeting CDL regulatory requirements, and other program evaluation and
monitoring activities.
STATE INFRASTRUCTURE BANKS
(highway trust fund)
Appropriations, 1997 (general fund) $150,000,000
Budget estimate, 1998 (trust fund) 150,000,000
Committee recommendation ...........................
State infrastructure banks are a promising way of facilitating needed
infrastructure investment, especially when all levels of government are
facing constrained resources. State infrastructure banks are a means of
increasing and improving both public and private investment in
transportation.
The National Highway System Designation Act of 1995 modified by the
1997 Department of Transportation Appropriations Act authorized States
to test State infrastructure banks [SIB's] which would provide greater
flexibility to support the financing of projects by using Federal-aid
funds for revolving loans and other forms of nontraditional financial
assistance for both public and private entities developing eligible
transportation projects. States have shown significant interest in
exploring the infrastructure financing benefits offered by this concept.
Thirty-eight States are now participating in the SIB pilot program. This
program is new, and, while the great majority of States have shown
interest in the program, there is little evidence yet of its
effectiveness. The Committee does not propose to provide additional SIB
seed money in fiscal year 1998. If participating States find SIB's to be
an effective way to increase investment, they can use their regularly
apportioned Federal-aid funds to capitalize SIB's further. The Committee
proposes a major increase in the amount of Federal-aid highway funds
that would be available for obligation.
INFRASTRUCTURE CREDIT PROGRAM
Appropriations, 1997 ...........................
Budget estimate, 1998 (trust fund) $100,000,000
Committee recommendation ...........................
(Highway Trust Fund)
The administration proposes $100,000,000 for an infrastructure credit
enhancement program. This program is intended to address the funding gap
for large projects of national significance that due to their scale and
complexity cannot be adequately funded through a SIB. This new program
would supplement existing Federal programs and leverage private capital
investment.
This program has not yet been authorized, so the Committee proposes
no funding for fiscal year 1998.
NATIONAL HIGHWAY TRAFFIC SAFETY ADMINISTRATION
SUMMARY OF FISCAL YEAR 1998 PROGRAM
The National Highway Traffic Safety Administration [NHTSA] was
established as a separate organizational entity in the Department of
Transportation in March 1970, to reduce the mounting number of deaths,
injuries, and economic costs resulting from traffic crashes on the
Nation's highways. The National Traffic and Motor Vehicle Safety Act
provides for the establishment and enforcement of Federal safety
standards for motor vehicles and associated equipment and research,
including the operation of required testing facilities and the National
Driver Register. The Motor Vehicle Information and Cost Savings Act
initially provided for the establishment of low-speed collision bumper
standards, consumer information activities, diagnostic inspection, and
odometer regulations and was later amended to incorporate responsibility
for the administration of Federal automotive fuel economy standards.
The Highway Safety Act provides for a coordinated highway safety
grant program to be carried out by the States, together with supporting
research, development, and demonstration programs. Under section 403 of
title 23, United States Code, technical assistance is provided to the
States in the conduct of their highway safety programs, and research and
demonstration projects are conducted to develop and show the
effectiveness of new techniques and countermeasures to address highway
safety problems including the Safe Communities Injury Control Program
initiated in 1996.
Grants are provided to the States under title 23, United States Code,
section 402 to assist in the establishment and improvement of highway
safety programs designed to reduce traffic crashes, deaths, and
injuries. Grants are funded as contract authority and apportioned by
formula to the States. Alcohol incentive grants are also allocated to
the States for driver impairment safety programs under title 23, United
States Code, section 410. In addition, some Federal-aid highway
apportionments may be transferred, pursuant to 23 U.S.C. 153, to States
that have not put safety belt use laws into effect.
The Committee recommends a total program level of $333,500,000 for
the activities and programs of the National Highway Traffic Safety
Administration for fiscal year 1998. This is $500,000 more than the
budget request.
The following table summarizes the Committee recommendations:
Program Fiscal year 1997 enacted\1\ Fiscal year 1998 estimate Committee recommendation
Operations and research $132,612,000 $147,500,000 $146,500,000
General funds (80,900,000) (74,760,000)
Highway trust funds (51,712,000) (147,500,000) (71,740,000)
Highway traffic safety grants\2\ \3\168,100,000 \3\185,500,000 \3\187,000,000
----------------------------- --------------------------- --------------------------
Total \4\300,712,000 333,000,000 333,500,000
\1\Excludes reductions for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205.
\2\Limitation on obligations.
\3\Includes highway-related safety grants program previously funded in FHWA.
\4\Excludes $3,000,000 in contract authorization provided in Public Law 105 18.
OPERATIONS AND RESEARCH
(Including Highway Trust Fund)
Appropriations, 1997\1\ $132,612,000
Budget estimate, 1998 147,500,000
Committee recommendation 146,500,000
\1\Excludes reduction of $629,812 for TASC and awards pursuant
to sections 321 and 346 of Public Law 104 205.
The bill includes an appropriation of $146,500,000 for operations and
research, which is $1,000,000 less than the budget request.
This level of funding provides for 660 full-time permanent positions.
The amount appropriated is to be distributed as follows:
[Dollar amounts in thousands]
Program Fiscal year 1997 appropriation level Fiscal year 1998 budget estimate Committee recommendation
Safety performance $12,226 $13,124 $13,124
Safety assurance $18,966 $19,923 $19,348
Highway safety $44,465 $49,665 $48,920
Research and analysis $50,387 $57,411 $57,411
Office of the Administrator $3,728 $4,116 $4,116
General administration $8,568 $9,419 $9,419
Grant administration reimbursement -$6,358 -$6,158 -$5,838
Accountwide adjustments ---------------------------------- --------------------------
--------------------------------------
Total $131,982 $147,500 $146,500
(Positions) (664) (664) (660)
\1\Excludes reductions for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205.
Adjustments have been made to the administration's requested level in
the following accounts:
Safety assurance:
-$500,000
-75,000
Highway safety:
+413,000
+1,066,000
-204,000
-2,000,000
+300,000
-320,000
SAFETY PERFORMANCE STANDARDS
Airbag deactivation rule .--While NHTSA estimates that thousands of
lives have been saved as a result of airbags since 1990, more than 60
people have been killed by airbags in crashes that, without the airbag,
were unlikely to cause injury. Most of these victims have been
small-statured adults and children. The Committee is aware of the
substantial public concern regarding the potential dangers of airbags.
Many parents are not able to fit all of their children in the back seat
of a car, and many families carpool, which often requires children to
ride in the front seat. The Committee directs NHTSA by December 31,
1997, to make a determination with regard to its pending rulemaking on
airbag deactivation. The Committee also directs NHTSA to continue to
make available to parents and other individuals accurate information on
the safety benefits and risks of airbags and on the correct use of
airbags.
Uniform tire quality grading standards .--The Committee has included
a prohibition that has been included in previous appropriations acts, on
any rulemaking which would require that passenger car tires be labeled
to indicate their low rolling resistance, or fuel economy
characteristics. The Committee has included this provision because the
need for such labels has not been adequately justified and the
additional costs associated with this proposal would likely be
prohibitive.
SAFETY ASSURANCE
Auto safety hotline .--The Committee recommends $953,000 to continue
present operations of the auto safety hotline. In fiscal year 1997,
funding for this program increased 125 percent to $1,483,000. One of the
reasons for this dramatic increase was to expand computer and telephone
equipment to handle a greater volume of calls. This equipment upgrade
has largely been accomplished, and therefore, such a high level of
funding should not be needed. The Committee's level of $953,000
represents a 45-percent increase over the fiscal year 1996 level.
Moreover, the Committee urges NHTSA to maximize the use of the internet
both to improve access to safety reports and brochures and to receive
information on possible vehicle defects.
Odometer fraud program. --The Committee has provided a total of
$135,000 for the odometer fraud program, which is $75,000 more than the
fiscal year 1997 level and $75,000 less than the administration's
request.
HIGHWAY SAFETY PROGRAMS
Alcohol, drugs, and State programs .--The Committee has provided
$10,209,000, the same amount appropriated for fiscal year 1997 and
$1,066,000 more than the administration's request. Alcohol was involved
in more than 17,000 traffic fatalities in 1996, accounting for more than
41 percent of all traffic fatalities. Furthermore, the number of
alcohol-related traffic fatalities increased in 1996 for the first time
in many years. To address this challenge, it is important that at least
the fiscal year 1997 level of alcohol countermeasure funding be
maintained.
National Occupant Protection Program .--The Committee has provided
$7,023,000, which is $413,000 above the administration's requested
level, in order to enhance NHTSA's effort to meet the national goal of
85 percent belt use rate throughout the United States. There is
overwhelming evidence that increased seatbelt use is the most effective
mechanism in preventing traffic-related injuries and fatalities.
Increasing belt use to 85 percent is expected to prevent almost 4,200
fatalities and 102,000 injuries and is estimated to save the Nation
$6,700,000,000 annually in medical expenses and losses in economic
productivity. Within the funds provided, the Committee has included
$1,000,000 in State grants for a new pilot program for States to
experiment with alternative safety restraint bar devices on schoolbuses.
The Committee is encouraged by new technologies which would improve
safety restraint usage rates on schoolbuses. NHTSA shall report back to
the Committee no later than December 31, 1997, on the implementation of
this program.
Enforcement and emergency services .--The Committee has provided
$3,196,000, $811,000 more than the fiscal year 1997 level and $204,000
less than the administration's request. The Committee has not included
funding for a new Federal study to demonstrate that traffic enforcement
can lead to criminal apprehension. The link between traffic enforcement
and criminal activity is apparent and has already been documented by
NHTSA, and does not necessitate a new Federal study.
Automatic external defibrillators .--The Committee believes that the
use of automatic external defibrillators [AED's] by emergency responders
can significantly improve cardiac arrest survival rates. To ensure that
training standards for use of AED's are not unnecessarily burdensome and
are consistent with new easy-to-use AED technology, the Committee
encourages the Secretary to work with State departments of
transportation and other appropriate State agencies to review their
defibrillator training requirements and to modify these requirements
where appropriate.
Driving, drugs, and youth initiative .--The Committee has not
provided any funds for this initiative. It is doubtful that prelicensor
drug testing, which is more of an intelligence test than a safety
countermeasure, would have any measurable impact on teen drug use or on
traffic safety problems caused by younger drivers. This 4-year
demonstration program would cost at least $16,000,000 during the next 3
years and would detract from the amount of funds available for many
critical highway safety initiatives, such as reducing alcohol-impaired
driving, increasing seatbelt use, reducing drug-impaired driving, and
programs to improve youth driving skills. This initiative is designed to
be a demonstration program for other States to model, but most States
will be discouraged from repeating this program because of the serious
constitutional, legal, and privacy issues raised by this program, and
the enormous startup costs States would incur without Federal
assistance. The Committee notes that the National Association of
Governors' Highway Safety Representatives opposes this program.
Head injury management .--The Committee has included $300,000 for
the purpose of improving prehospital care for head-injured patients.
Each year, 500,000 people are hospitalized due to head injuries, the
majority of which are caused by motor vehicle accidents. The economic
impact of traumatic brain injury is estimated at more than
$40,000,000,000 annually. The American Association of Neurological
Surgeons [AANS], the Congress of Neurosurgeons [CNS], and the World
Health Organization Committee on Neurotrauma have recently endorsed a
single set of scientifically based ``Guidelines for the Management of
Severe Head Injury.'' In 1996, the guidelines were published and
distributed to neurosurgeons, neurologists, critical care physicians,
and emergency room physicians throughout the United States. However,
although one-third of the guidelines address prehospital resuscitation
and care, to date no direct effort has been made to get the guidelines,
and the protocol spelled out within them, to the emergency medical
service medical directors or the emergency medical service personnel in
the ambulances and helicopters. The Committee has provided $300,000 so
that the scientific guidelines may be translated into a useful document
for EMS personnel, including the development of new patient management
protocol, algorithms, and training support materials. The Committee
encourages NHTSA to work with the Aitken Neuroscience Institute to
accomplish this objective.
FTE reduction .--The administration has given States considerably
more flexibility under the section 402 State Highway Safety Grant
Program and reduced the level of Federal management of this program.
NHTSA should not need as many employees to administer this program.
Therefore, the Committee is reducing the FTE level and transferring the
corresponding funds into the State grant program.
RESEARCH AND ANALYSIS
Special crash investigations .--The Committee has provided the
requested increase in funding to analyze airbag-related crashes which
involve serious injuries or fatalities. Following the March 1997 NHTSA
rule which allows automobile manufacturers to depower their airbags,
many manufacturers have announced that all, or most, of their 1998 model
year vehicles will incorporate depowered bags. Therefore, the Committee
directs NHTSA to ensure that sufficient emphasis is placed on
quantifying the safety benefits and costs associated with depowering
airbags. Specifically, NHTSA should investigate crashes involving
vehicles with depowered airbags in which there was a front-seat occupant
fatality or serious injury and compare the effectiveness of depowered
airbags with that of full-powered airbags for: (1) vulnerable occupants
such as small-statured adults and children; (2) all unbelted occupants;
and (3) fatalities and injuries for all occupants.
Biomechanics .--The Committee recommends $10,587,000, the amount
requested in the budget. This appropriation continues funding for
hospital-based, indepth crash injury studies at four trauma centers.
Currently, these centers are located at the William Lehman Injury
Research Center at Jackson Memorial Hospital, Miami; the National Study
Center for Trauma and EMS, Baltimore; the University of Medicine and
Dentistry, New Jersey; and the Children's National Medical Center,
Washington, DC.
HIGHWAY TRAFFIC SAFETY GRANTS
(Liquidation of Contract Authorization)
(Highway Trust Fund)
Appropriations, 1997 ($168,100,000)
Budget estimate, 1998 (185,000,000)
Committee recommendation (186,000,000)
The budget provides for the continuation of the safety formula grant
program. Grant allocations are determined on the basis of a statutory
formula established under 23 U.S.C. 402. The budget proposes
consolidating grant programs into a State and community formula grant
program. Individual States use this funding in national priority areas
established by Congress which have the greatest potential for achieving
safety improvements and reducing traffic crashes, fatalities, and
injuries. The alcohol incentive grant program encourages States to enact
stiffer laws and implement stronger programs to detect and remove
impaired drivers from the roads. The proposed occupant protection
program encourages States to promote and strengthen occupant protection
initiatives.
The Committee recommends an appropriation for liquidation of contract
authorization of $186,000,000 for the payment of obligations incurred in
carrying out provisions of the State and Community Highway Safety
Program (sec. 402) and the Impaired Driving Countermeasures Incentive
Grant Program (sec. 410).
The Committee has included a provision prohibiting the use of section
402 funds for construction, rehabilitation or remodeling costs, or for
office furnishings and fixtures for State, local, or private buildings
or structures.
LIMITATION ON OBLIGATIONS
The bill includes language limiting the obligations to be incurred
under the various highway traffic safety grants programs, as requested
in the budget. Separate obligation limitations are included in the bill
with the following funding allocations:
Fiscal year 1997 enacted Fiscal year 1998 estimate Committee recommendation
State and community grants\1\ $140,200,000 $140,200,000 $150,700,000
Alcohol incentive grants 25,500,000 34,000,000 34,000,000
Occupant protection incentive grants 9,000,000
National Driver Register 2,400,000 2,300,000 2,300,000
-------------------------- --------------------------- --------------------------
Total 168,100,000 185,500,000 187,000,000
\1\Merges FHWA's and NHTSA's section 402 formula grant programs.
The Committee has included an obligation limitation of $150,700,000
for the section 402 program, which is $10,500,000 more than the budget
request. This limitation includes $138,700,000 for NHTSA's section 402
grant program and $12,000,000 for FHWA's section 402 grant program.
Language is included in the bill limiting funds available for Federal
grants administration to $4,948,000. A reduction of four FTE's of NHTSA
personnel in the field is recommended with the savings being transferred
to the States to help design their own safety programs after careful
evaluation of their safety problems and resources.
Within the moneys allowed for the section 402 program, the Committee
has included $9,000,000 to expedite the efforts of the States to
increase seatbelt use. The Committee intends that these funds will be
used for occupant protection activities beyond the estimated amount that
each State spent in this area in fiscal year 1997.
The Committee has provided additional funds beyond the amount
requested for the basic section 402 program to support the States'
efforts to prepare performance-based highway safety plans. As a result
of interim final regulations issued by NHTSA and FHWA, all States will
be required to prepare performance-based plans during fiscal year 1998
to receive section 402 moneys. The preparation of these documents will
require improved data analysis and information systems and program
evaluation. To defer these additional costs, the Committee has
recommended $1,500,000 above the administration's request.
FORMULA GRANTS (SEC. 410)
The Committee proposes a total limitation of $34,000,000 for
obligations to be incurred under the section 410 Alcohol-Impaired
Driving Countermeasures Program authorized under the Intermodal Surface
Transportation Efficiency Act of 1991. The section 410 program has
provided incentives to States to implement innovative strategies to
reduce drunk and drugged driving, and constitutes an essential part of
the goal to reduce alcohol-related traffic deaths. To receive grants
under the section 410 program, States must satisfy certain basic
criteria established by Congress, including prompt license suspension,
legal blood-alcohol content levels, sobriety checkpoints,
self-sustaining community alcohol programs, mandatory sentencing, and
control of access to alcohol by youth. Supplemental grant funding is
available to States that meet additional criteria, including .02 BAC
zero tolerance laws for drivers under age 21, open container laws,
strict drugged driving prevention programs, and mandatory BAC testing
programs. Section 410 grants funds may be used only to support programs
to reduce impaired driving.
The bill includes language, as requested, providing that $500,000 of
the section 410 moneys shall be used for technical assistance.
NATIONAL DRIVER REGISTER
The National Driver Register [NDR] is a central repository of
information on individuals whose licenses to operate a motor vehicle
have been revoked, suspended, canceled, or denied. As authorized by
Congress, the NDR is transitioning to an electronic problem driver
pointer system to facilitate the decisionmaking by State driver
licensing officials. NHTSA is preparing for transfer of certain NDR
activities to a non-Federal entity. The NDR also contains information on
persons who have been convicted of serious traffic-related violations
such as driving while impaired by alcohol or other drugs. State driver
licensing officials query the NDR when individuals apply for a license,
for the purpose of determining whether driving privileges have been
withdrawn by other States. Other organizations such as the Federal
Aviation Administration and the Federal Railroad Administration also use
NDR license data in hiring and certification decisions in overall U.S.
transportation operations.
The bill includes an obligation limitation of $2,300,000 for the NDR,
which is the same as the administration's request.
FEDERAL RAILROAD ADMINISTRATION
SUMMARY OF FISCAL YEAR 1998 PROGRAM
The Federal Railroad Administration [FRA] became an operating
administration within the Department of Transportation on April 1, 1967.
It incorporated the Bureau of Railroad Safety from the Interstate
Commerce Commission, the Office of High Speed Ground Transportation from
the Department of Commerce, and the Alaska Railroad from the Department
of the Interior. The Federal Railroad Administration is responsible for
planning, developing, and administering programs to achieve safe
operating and mechanical practices in the railroad industry. Grants to
the National Railroad Passenger Corporation (Amtrak) and other financial
assistance programs to rehabilitate and improve the railroad industry's
physical plant are also administered by the Federal Railroad
Administration.
The Committee recommends new appropriations and obligation
limitations totaling $618,223,000 for the activities of the Federal
Railroad Administration for fiscal year 1998. This is $278,086,000 less
than the budget request.
The following table summarizes the Committee recommendations:
Program Fiscal year 1997 enacted\1\ Fiscal year 1998 budget estimate Committee recommendation
Office of the Administrator $16,739,000 $20,559,000 $19,800,000
Railroad safety 51,407,000 57,067,000 57,067,000
Railroad research and development 20,100,000 21,638,000 24,906,000
Northeast Corridor Improvement Program 175,000,000 273,450,000
Railroad Rehabilitation and Improvement Program
High-speed rail trainsets and facilities 80,000,000
Next generation high-speed rail 24,757,000 19,595,000 26,000,000
Alaska railroad rehabilitation 10,000,000 17,000,000
Rhode Island rail development 7,000,000 10,000,000 10,000,000
Direct Loan Financing Program 58,680,000
Grants to National Railroad Passenger Corpora- tion\2\ 587,950,000 344,000,000
Capital grants to National Railroad Passenger Corporation (HTF) 445,450,00
Operating grants to National Railroad Passenger Corporation (HTF) 344,000,000
----------------------------- ---------------------------------- --------------------------
\1\Excludes reductions for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205; also excludes $18,900,000 in emergency railroad rehabilitation and repair.
\2\Includes mandatory passenger rail service payments.
OFFICE OF THE ADMINISTRATOR
Appropriations, 1997\1\ $16,739,000
Budget estimate, 1998 20,559,000
Committee recommendation 19,800,000
\1\Excludes reductions for TASC and awards pursuant to sections
321 and 346 of Public Law 104 205.
The Office of the Administrator provides support and guidance on
issues concerning the railroad industry and the day-to-day operations of
the Federal Railroad Administration. The appropriation includes budget
activities related to executive direction and administration and policy
support aimed at resolving problems facing the railroad industry. For
the Office of the Administrator, the Committee provides $19,800,000. The
amount provided is $759,000 less than the administration's request.
COMMITTEE RECOMMENDATION
The Committee recommends the following adjustments to the budget
request:
Limit growth in technical assistance and policy support -$50,000
Limit growth in support services -85,000
Limit growth in information technology -146,000
Reduce costs for GSA rent -442,000
Chief Counsel staffing ( -1 FTE) -36,000
Technical assistance and policy support .--The Committee recommends
$50,000 for contract support, which is $50,000 less than the amount
requested. The additional funds provided will allow FRA to improve the
analytical tools used by the States to decide whether to invest in
rail-related projects. The Committee has not provided the amount
requested because of budgetary limitations and the availability of more
than 20 staff in the Office of Policy and Program Development to conduct
much of the analysis needed to support its mission.
Support services .--Because of budgetary limitations, the Committee
is recommending $40,000, which is $85,000 below the request. This
reduction shall not affect travel in the Northeast corridor to maintain
adequate Amtrak oversight.
Information technology .--Because of budgetary limitations and the
need to reduce the rate of funding increase in this area, the Committee
is recommending $146,000, which is $146,000 below the request.
GSA rent .--The Committee is concerned that FRA is incurring higher
rental costs at its headquarters offices in downtown Washington than it
would at the Nassif Building, where other departmental agencies are
located. The Committee, therefore, recommends a GSA rent funding level
of $2,513,000, a reduction of $442,000 below the administration's
request. It is the Committee's strong preference that FRA return its
headquarters staff to the Nassif Building where the agency is more fully
integrated within the departmental community.
Chief Counsel staffing .--It is the Committee's opinion that the
additional position requested to assist the Chief Counsel's office with
regulatory issues is not necessary at this time.
Operation Respond .--Operation Respond is a project designed to
improve information available to first responders at hazardous materials
and passenger train incidents. Through software and training developed
by this joint industry/government partnership, fire and law enforcement
dispatch centers have increased capability to determine quickly and
accurately the contents of a hazardous material railcar or truck trailer
involved in an accident. Currently there are approximately 104
installations using this technology in 17 States. Work has resulted in
the development and demonstration of a CD ROM that includes diagrams and
photographs of rail equipment, suggested extrication points, rescue
guidelines, emergency/handicapped features of railcars as well as full
motion video and audio procedures for removal of passenger car windows
and doors. The Federal investment in this program has successfully
generated commensurate investments from rail and commercial motor
vehicle carriers. The Committee sees benefit in supporting this program
to include regional and shortline railroads as well as continuing
refinements in the area of passenger rail. The Committee's allowance
includes $50,000, as requested, to support this important program.
Additional funds for Operation Respond are included in the Intelligent
Transportation Systems Program within the Federal Highway Administration
section of this report.
RAILROAD SAFETY
Appropriations, 1997\1\ $51,407,000
Budget estimate, 1998 57,067,000
Committee recommendation 57,067,000
\1\Excludes reductions for TASC and awards pursuant to sections
321 and 346 of Public Law 104 205.
This appropriation finances the development, administration, and
enforcement of programs designed to achieve safe operating and
mechanical practices in the railroad industry.
The Committee recommends a $57,067,000 program level for the Railroad
Safety Program, the same amount requested by the administration.
COMMITTEE RECOMMENDATION
The Committee recommends the following adjustments to the budget
request:
Limit staff increase and associated personnel costs ( -2 FTE's) -$72,000
Limit growth in technology systems -77,000
Rail safety advisory committee -100,000
Administrative reduction -40,000
Automated track inspection vehicle -111,000
Grade crossing safety activities +400,000
FRA-wide technology systems .--Because of budgetary limitations, the
Committee recommends a reduction of $77,000 for FRA-wide technology
systems. FRA is provided the flexibility to find necessary cost savings
within the budget of the Office of Safety to pay for video conferencing
and imaging systems.
Railroad Safety Advisory Committee [RSAC] .--The cooperative work of
rail industry, labor, government, and other concerned parties assembled
under the auspices of the Railroad Safety Advisory Committee, has been
rather successful. The quality of proposed regulations has improved.
Neither rail labor nor management have voiced any concerns to the
Committee regarding this process, and the overall costs of regulatory
formulation have decreased. The Committee commends this process and
praises the voluntary contributions of all those individuals involved.
Because of the success of this effort and the need for continued
progress in FRA's regulatory process, the Committee recommends an
increase of $50,000 over the enacted level to support the RSAC. Because
of budgetary limitations and the longstanding interest of reducing
expenses of the Department's Federal advisory committees, the Committee
is unable to provide the entire amount requested. The Committee also
notes that other modal administrations use negotiated rulemaking
processes without requesting substantial increases in their operating
budgets.
Administrative reduction .--The Office of Safety is provided the
administrative flexibility to find $40,000 in savings from travel,
permanent change of station costs, bonuses, or other administrative
expenses.
Automated track inspection vehicle [ATIP] .--The Committee strongly
supports FRA's efforts to replace the T 10 track geometry inspection
vehicle. ATIP provides a means of detecting geometry defects in track
that help direct critical repairs and prevent track-related accidents,
and also assists FRA safety inspectors in planning their inspections
based on historical trends. The current vehicle is 16 years old, and has
become more difficult to use due to nonavailability of parts and lack of
expertise to repair. However, the Committee is confident that reducing
the $3,000,000 requested funding for ATIP by $111,000 will not delay the
design, integration, installation, and delivery of the new vehicle
beyond the 18-month schedule estimated by the agency.
Grade crossing safety .--The Committee recommends that not less than
$600,000 shall be allocated for activities to improve grade crossing
safety. This represents an increase of $400,000 above the base program
level of $200,000. FRA's grade crossing program will include:
encouraging the safe consolidation and closing of crossings consistent
with State and local objectives; working with State and local government
safety officials to reduce the risk of crashes; promoting the use of
technology to improve compliance with traffic signals and signs; and
providing outreach and educational materials to the judicial and
enforcement community. These funds are in addition to those provided for
information analysis and collection.
Significant improvements in grade crossing safety have been realized,
especially since 1994. Continued reductions in the number of grade
crossing fatalities and injuries will require sustained efforts by the
traffic safety community, industry, and the FRA. The Committee supports
FRA's longstanding commitment that its field staff dedicate a portion of
their time to Operation Lifesaver activities. Unfortunately, FRA's
commitment to this objective has apparently diminished. Although there
are other workload demands on FRA's inspectors, these demands should be
balanced with the need to address the major causal factor of death and
injury associated with rail transportation: namely, failure to comply
with grade crossing signs and signals and railroad property rights.
Consequently, the Committee requests the Administrator to reinstitute
and adhere to the goal of ensuring that most FRA inspectors play a
definitive role in promoting the public educational aspects of grade
crossing safety and preventing trespassing on railroad properties. The
Committee directs FRA to prepare a letter to the House and Senate
Appropriations Committees detailing significantly increased inspector
time allocated toward Operation Lifesaver activities. The letter, to be
submitted by May 1, 1998, shall include information of the increased
frequency of Operation Lifesaver contacts and copies of memoranda to the
field staff demonstrating FRA's commitment to the goal of active FRA
participation in Operation Lifesaver activities. The Committee
encourages FRA to increase the percentage of safety inspectors who are
certified to be Operation Lifesaver presenters from the current level of
60 percent to 80 percent.
RAILROAD RESEARCH AND DEVELOPMENT
Appropriations, 1997\1\ $20,100,000
Budget estimate, 1998 21,638,000
Committee recommendation 24,906,000
\1\Excludes reductions for TASC pursuant to section 321 of
Public Law 104 205.
The Federal Railroad Administration's Railroad Research and
Development Program provides for research in the development of safety
and performance standards for high speed rail and the evaluation of
their role in the Nation's transportation infrastructure. The program
also provides support for the Deputy Associate Administrator for
Technology Development and the staff of the Office of Research and
Development. The Committee recommends an appropriation of $24,906,000
for railroad research and development.
COMMITTEE RECOMMENDATION
The Committee recommends the following changes to the
administration's budget submission:
Equipment, operations, and hazardous materials +$250,000
Track, structures, and train control +3,500,000
Safety of high-speed ground transportation -600,000
Research and development facilities -80,000
Administration -102,000
Transportation research board study +300,000
Equipment, operations, and hazardous materials .--The Committee
recommends a funding level of $5,759,000 for this budget activity, an
increase of $250,000 above the requested level. Within this funding, the
Committee has deleted $100,000 associated with the diesel multiple units
and light rail vehicle project element, and a reduction of $50,000 from
equipment-related research.
Operation Lifesaver .--Within the equipment, operations, and
hazardous materials budget activity, the Committee recommends $600,000
to support Operation Lifesaver activities, which is $200,000 more than
requested in the budget. This increase is necessary to ensure adequate
assistance and support to the 49 State Operation Lifesaver programs.
These moneys will be used for: providing appropriate and ongoing
training and advisory services for State and regional coordinators,
trainers, and presenters; developing and distributing generic public
education materials and public service campaign materials for radio and
print media; supporting State and community outreach, including
materials for commercial drivers, law enforcement personnel, prosecutors
and judges, and encouraging development of State and community trespass
prevention programs.
1 800 emergency notification system .--The Committee maintains that
FRA should proceed expeditiously with the development and evaluation of
computer-based emergency response systems that will expedite
notification of malfunctioning grade crossing signals, or track
obstacles, such as trucks that have become hung-up on high-profile rail
crossings. Such statewide systems are recommended by the National
Transportation Safety Board as a means to warn railroads and local law
enforcement of such problems, before they contribute to an accident. The
$200,000 included by the Committee for this initiative within the
equipment, operations, and hazardous materials budget activity will
allow FRA to expand this project to allow participation of three States.
Before the fiscal year 1999 budget is submitted to Congress, the
Administrator shall provide the House and Senate Committees on
Appropriations a research and technology transfer plan with definitive
schedules delineating the process and timetable that will be used to
complete this project and promote State investment in this approach to
improve grade crossing safety.
Track, structures, and train control .--The Committee has provided a
funding level of $11,246,000 for the track, structures, and train
control budget activity, an increase of $3,500,000 above the
administration's request. The Committee has not provided the $500,000
requested for replacement and upgrade of the T 6 inspection railcar, but
will consider without prejudice any proposed reprogramming action to
provide the necessary funds within FRA's research and development office
for this new equipment.
Alaska Railroad positive train control demonstration project .--The
Committee has provided $4,000,000 for a positive train control
demonstration [PTC] project on the Alaska Railroad. The focus of the
project should be on positive train separation and the protection of
track crews and inspectors, as well as improved train performance and
eliminating the need for construction of additional sidings. The
Committee understands that the Alaska Railroad presents a uniquely
suitable demonstration staging area, because it is simpler to implement
PTC on the Alaska Railroad than on any other American rail system. The
Alaska Railroad does not have any signaling system in place today--only
grade crossing signals, and dispatching of trains is done exclusively
with voice radio transmission of track warrants. Consequently, there is
no debate on what the correct strategy to convert from current
conventional signaling to PTC signaling. In addition, the Alaska
Railroad already has a microwave communications system in place, and the
State of Alaska Highway Department and the railroad have coordinated and
integrated their respective microwave communications systems so that a
failure at any one site on either will not interrupt the flow of
messages. This redundancy increases the reliability of both systems and
will assist the successful implementation of PTC.
The Alaska Railroad PTC project will be the first regionwide
installation of positive train control equipment, and the Alaska
Railroad will be the first railroad totally PTC equipped. The project
will be more than a demonstration--it will be a fully operational PTC
system, providing the agency an invaluable baseline reference for other
national positive train control system development projects. The
$4,000,000 provided in the Senate mark will allow FRA and the railroad
to develop and install computer-aided dispatching, which is phase 1 of
the four-phase project.
Safety of high-speed ground transportation .--This budget activity
is increased by $50,000 above the fiscal year 1997 baseline. The
Committee has deleted $500,000 associated with maglev systems
cooperative research and $100,000 associated with environmental
issues/impact analyses.
Research and development facilities .--The Committee supports the
agency's request to restore the FRA Transportation Technology Center
[TTC] in Pueblo, CO, and has included the $350,000 requested to purchase
or upgrade heavy equipment, laboratory instrumentation, and emergency
support equipment at the TTC. The $80,000 for preliminary design for a
project maintenance facility building is not included.
Administration .--The administrative costs of the research and
development program have grown significantly during the last 2 years.
For example, fiscal year 1996 costs were $1,695,000; fiscal year 1997
costs are estimated at $2,181,000. In order to eliminate further growth
in this area, the Committee is providing administration funding at the
enacted level, $2,181,000, which is $102,000 below the amount requested.
Transportation Research Board review .--The Transportation Research
Board [TRB] Committee for an Assessment of Federal High Speed Ground
Transportation R&D has provided useful recommendations on the Next
Generation of High Speed Rail Program. Discussions with FRA indicate
that TRB's advice has been welcome, appreciated, and useful. FRA should
continue to adjust its budget submission to respond to the
recommendations of the TRB panel.
The Committee maintains that it would be beneficial to expand the
purpose of the current TRB review to include a systematic analysis of
the entire FRA research and development program. A reconstituted panel
should also analyze the research and development management structure
and approach and the current direction and allocation of moneys devoted
to the various program areas. The questions of whether there is an
appropriate balance of Federal, State, and private sector input and cost
sharing and whether the directions and objectives outlined in FRA's
5-year strategic R&D plan are appropriate should be explored.
Furthermore, the TRB panel should evaluate whether it is of critical
importance to establish a Railroad Safety Institute, and whether such an
institute would be duplicative of current research efforts. A focal
point of this review should be to ascertain how the FRA research and
development program could better serve the safety mission of the agency.
The Committee maintains that periodic reports to FRA and to the
Committee prior to markup would be especially useful. The Committee
recommends $300,000 to support this initiative.
NORTHEAST CORRIDOR IMPROVEMENT PROGRAM
Appropriations, 1997 $175,000,000
Budget estimate, 1998 (\1\)
Committee recommendation 273,450,000
\1\Requested funding of $200,000,000 for NECIP and $23,450,000
for Pennsylvania Station redevelopment is included in the proposed
capital grants to the ``National Railroad Passengers Corporation
(highway trust fund)'' appropriation.
Title VII of the Railroad Revitalization and Regulatory Reform Act of
1976, as amended, created the Northeast corridor improvement project
[NECIP] to upgrade and modernize the rail corridor between Washington,
DC, and Boston, MA, the most heavily used rail passenger corridor in the
Nation.
Since 1976, some $3,775,000,000 has been invested by the Federal
Government in the Northeast corridor. Amtrak is responsible for
implementing the goals of NECIP, defined as regularly scheduled service
between New York and Washington in under 3 hours and between New York
and Boston in 3 hours. Over 200 million intercity and commuter rail
passengers travel on some portions of the Northeast corridor rail line
each year.
Since 1991, funding for the project has focused on two areas:
reduction in trip time between New York and Boston; and
state-of-good-repair recapitalization of the railroad between New York
and Washington. The New York-Boston project is scheduled to be completed
by October 1999, following construction of the new electrification
system between New Haven and Boston and the delivery of the first of 18
new high-speed trainsets. Many of the infrastructure improvements,
necessary to permit up to 150-miles-per-hour speeds and facilitate
increased growth on the rail line, have been designed and installed.
Electrification construction work began on July 1, 1996, and is
scheduled to be complete by the end of calendar year 1999.
Amtrak projects that the operation of high-speed rail service on the
Northeast corridor, made possible through the NECIP improvements, will
enable it to generate net incremental revenues (after expenses and debt
service) in excess of $168,000,000 in the year 2000. By 2001, Amtrak
projects that ridership on the Northeast corridor will grow from the
current level of 11,100,000 passengers per year to 14,700,000 passengers
annually. Amtrak estimates that an additional $1,400,000,000 will be
needed to finish the high-speed rail project between New York and
Boston.
COMMITTEE RECOMMENDATION
The Committee has provided $273,450,000 for the Northeast corridor
improvement project, which includes $23,450,000 to complete the Federal
share of funding for the Pennsylvania Station redevelopment project in
New York City. This is $50,000,000 more for corridor improvements than
requested by the administration.
Pennsylvania Station redevelopment .--This redevelopment project
makes safety and service improvements at the existing Pennsylvania
Station, the Nation's busiest train station; and will convert a portion
of the James A. Farley Post Office Building to be used as an intermodal
station. This will greatly improve safety and circulation, and will
provide significant new platform access, which will be necessary for
both rail and transit passengers when the additional ridership generated
by the new high-speed service is realized beginning in 1999. City,
State, and private resources are being utilized in this cooperative
redevelopment effort. The total cost of the project is estimated to be
$315,000,000. The $23,450,000 provided by the Committee completes the
Federal share of $100,000,000.
On July 10, 1997, the Pennsylvania Station Redevelopment Corp.'s
[PSRC] board voted unanimously to ratify funding agreements with all the
project's funding partners: the New York City Economic Development
Corp.; the New York State Department of Transportation; and the Federal
Railroad Administration. In addition, funding has been provided to the
PSRC by the Empire State Development Corp. At the PSRC board meeting, a
revised project budget and schedule was also ratified, with construction
(of early-action items such as the platform underneath the Farley
Building) commencing in third quarter 1998, and completion of the entire
construction project scheduled before the end of calendar year 2002. The
Committee is confident that this new schedule and budget--as well as the
clear separation of responsibilities between the PSRC, which is in
charge of work at the Farley Building and Amtrak, which is in charge of
the work in the existing Penn Station and all platform work--will help
expedite the completion of the Pennsylvania Station redevelopment
project.
High-speed trainset safety and crashworthiness .--The Committee
assigns the highest priority to passenger and crew safety and the
crashworthiness of the trains to be used in the Northeast corridor
high-speed rail project. Accordingly, the Committee expects that the
equipment placed into service for this project meets or exceeds all of
the safety and crashworthiness specification requirements, explicit or
implicit.
RAILROAD REHABILITATION AND IMPROVEMENT PROGRAM
Section 511 of Public Law 94 210, as amended authorizes obligation
guarantees for meeting the long-term capital needs of private railroads.
Railroads utilize this funding mechanism to finance major new facilities
and rehabilitation or consolidation of current facilities. No
appropriations or new loan guarantee commitments are proposed in fiscal
year 1998 consistent with the budget request.
NEXT GENERATION HIGH-SPEED RAIL
Appropriations, 1997\1\ $24,757,000
Budget estimate, 1998 19,595,000
Committee recommendation 26,000,000
\1\Excludes reduction for TASC pursuant to section 321 of
Public Law 104 205.
The Committee has provided $26,000,000 in general fund appropriations
for the high-speed ground transportation [HSGT] program. The amount
provided is $6,405,000 more than the administration's request.
The Committee first provided funding for the Next Generation
High-Speed Rail Program in fiscal year 1995. The program is authorized
by section 1036(a) of ISTEA and by the Swift Rail Development Act of
1994. The program funds HSGT research, development, and technology
demonstration programs, as well as planning and analysis required to
evaluate technology proposals under the program.
The Committee has made the following adjustments to the
administration's next generation high-speed rail programs:
High-speed positive train control -$1,250,000
High-speed nonelectric locomotives +4,500,000
Grade crossing and innovative technologies +3,000,000
Track and structure technology -350,000
Planning technology +500,000
Administration +5,000
Within these program levels, the Committee recommends the following
allocations:
Flexible block control .--The Committee has reduced the
administration's request for train control programs using flexible block
control by $1,250,000, due to concerns that these funds might not
readily be utilized by any of the existing or potential high-speed rail
corridors. Much of the requested funding was to be used by the State of
Illinois on the Chicago-St. Louis corridor for flexible block
centralized control command systems demonstration. Due to recent freight
rail mergers affecting the original corridor's route, the State is now
negotiating with Chicago METRA to relocate the demonstration project.
This may delay the project and the obligation of funds.
ALPS hybrid flywheel-turbine .--The sum of $3,000,000 is provided
for the design and development of a commercial locomotive prototype
compatible with the flywheel propulsion system. The advanced locomotive
propulsion system [ALPS] would permit more rapid acceleration of
nonelectric locomotives, overcoming one of their major shortcomings. The
ALPS hybrid flywheel-turbine project is a classic public sector research
and development effort, incorporating the cooperation and expertise of
the Federal Government, private industry, and academia. The project
currently has a full-size rotor construction underway, and in May 1997,
successfully tested a one-third scale rotor prototype.
Prototype nonelectric high-speed locomotive .--The Committee
recommends that FRA utilize the remaining $4,500,000 in the high-speed
nonelectric locomotive activity on the design, development, and testing
of different commercial nonelectric locomotive concepts that integrate
to the greatest extent possible the best technologies currently being
developed with those technologies under current development in the NGHSR
Program, such as the flywheel motor/generator and power conversion
system.
RTL 3 turbo trains, State of New York .--The sum of $5,000,000 is
provided to expedite the development, design, modernization and testing
of next generation high-speed, lightweight trainsets for nonelectric
corridors. Currently, one upgraded turboliner trainset is in revenue
service on Amtrak's Empire corridor, which runs through the State from
New York City to Buffalo. New York State DOT is seeking financing of up
to $40,000,000 to upgrade the remainder of its fleet of seven turboliner
trains, and the Committee anticipates that the funds provided herein
will enable the State DOT to successfully leverage private financing for
the balance of the necessary funds. These upgraded trainsets will safely
and economically provide regular high-speed service at speeds of 110 to
125 miles per hour.
Sealed corridor initiative .--Within the $7,500,000 funding level
for the grade crossing and innovative technology activity, $4,000,000 is
provided for the sealed corridor initiative, an ongoing project
addressing the 130 grade crossings in the 92-mile Charlotte to
Greensboro segment of North Carolina's proposed high-speed rail corridor
between Charlotte and Raleigh. Of the remaining funds, the Committee
believes that $1,000,000 should go toward the continuation of FRA's
broad agency announcement approach to solicit a wide range of low cost,
innovative high-speed rail grade crossing technologies.
Planning technology .--The administration is directed to provide
$500,000 to a State department of transportation to establish a
consortium of States and other participants that would assist the FRA in
advancing high-speed rail. Consistent with the recommendation of a panel
of the Transportation Research Board, this forum would provide the
States with a mechanism on a continuing basis to: (1) develop a
strategic plan for research, development, demonstration, and deployment
of high-speed rail technology; (2) conduct a peer review of the FRA's
research and development program to provide direction on research
subject areas and also program and project oversight; and (3) provide a
means for advancing the States' common requirements for compatible and
interoperable equipment and systems. The consortium should work toward
creating a common market opportunity to meet the high-speed rail needs
of the States and coordinating the planning process for high-speed rail
deployment.
ALASKA RAILROAD REHABILITATION
Appropriations, 1997 $10,000,000
Budget estimate, 1998 ...........................
Committee recommendation 17,000,000
The Committee has included a total of $17,000,000 for rail safety and
infrastructure improvements benefiting passenger operations of the
Alaska railroad. This railroad extends 470 miles from Seward through
Anchorage, the largest city in Alaska, to the interior town of
Fairbanks. It carries both passengers and freight, and provides a
critical transportation link for passengers and cargo traveling through
difficult terrain and harsh climatic conditions. Within the funds
provided, $7,000,000 will be utilized to expand and improve the Seward
Dock, the southernmost terminus of the railroad and an important
intermodal transfer point on the Alaska Marine Highway System. The State
of Alaska, the city of Seward, the Alaska Railroad, and cruise ship
lines that utilize the port will provide significant cost-share funding
toward completion of the project this fiscal year. The remaining
$10,000,000 will go toward general upgrade and maintenance of the
railroad's track, equipment, railbed and rolling stock.
RHODE ISLAND RAIL DEVELOPMENT
Appropriations, 1997 $7,000,000
Budget estimate, 1998 10,000,000
Committee recommendation 10,000,000
For fiscal year 1997, Congress appropriated $7,000,000 to fund
construction of a third track on the Northeast corridor between
Davisville and Central Falls, RI, with sufficient clearance to
accommodate double stack freight cars. The appropriation act stipulated
that the State of Rhode Island or its designee provide matching funds on
a dollar-for-dollar basis, and that the Providence & Worcester [P&W]
Railroad, which would benefit from the third track, enter into an
agreement with the Secretary to reimburse Amtrak and/or FRA up to
$13,000,000 for damages stemming from certain potential legal actions
brought by the P&W.
For fiscal year 1998, the administration proposes to continue funding
this project, with a dollar-for-dollar matching requirement of the State
of Rhode Island or its designee and a requirement that the P&W enter
into an agreement with the Secretary to reimburse Amtrak and/or FRA up
to $13,000,000 for damages stemming from certain potential legal actions
brought by the P&W. The Committee is providing $10,000,000 to continue
the Rhode Island rail development project, the same amount as requested
by the administration. Fiscal year 1998 will be the fourth year that
Federal funds are appropriated for the Rhode Island rail development
project. The total amount in Federal funds received thus far is
$13,000,000. Total cost of the project over the planned 6-year schedule
is somewhere between $110,000,000 and $120,000,000, with a required 50
percent match of Federal funds. In November 1996, the State of Rhode
Island passed a $62,000,000 bond referendum, of which $50,000,000 is
guaranteed for the rail redevelopment project. The major components of
the project include rehabilitation/construction of a freight-dedicated
third track, and modification of bridges and other structures to provide
sufficient vertical clearance to accommodate modern freight equipment,
and horizontal clearance to accommodate the freight-dedicated track.
DIRECT LOAN FINANCING PROGRAM
Loan subsidy appropriation Limitation on direct loans
Appropriations, 1997 $58,680,000
Budget estimate, 1998
Committee recommendation
The administration has not requested any funds under section 505 of
the Rail Revitalization and Regulatory Reform Act of 1976 as all funds
to complete the project were provided in 1997. This project involves the
elimination of over 200 at-grade-highway crossings along a 20-mile rail
corridor in order to improve access to the Ports of Los Angeles and Long
Beach.
GRANTS TO NATIONAL RAILROAD PASSENGER CORPORATION (AMTRAK)
Appropriations, 1997\1\ $587,950,000
Budget estimate, 1998\1\ \2\789,450,000
Committee recommendation 344,000,000
\1\Includes $142,000,000 for mandatory passenger rail payments
in fiscal year 1997 and $142,000,000 in fiscal year 1998.
\2\1998 funding to be derived from the highway trust fund.
The National Railroad Passenger Corporation (Amtrak) was established
in 1971 to preserve and improve the Nation's intercity rail passenger
system. Since the passage of the Rail Passenger Service Act in 1971,
Amtrak and Amtrak-related accounts have been appropriated
$20,305,800,000 in Federal funds. Since the beginning, Amtrak has been
directed to maximize its revenues and minimize Government subsidies. The
Corporation has consistently reported to Congress that it is moving
toward self-sufficiency and zero Federal operating support. However, in
the 26 years Amtrak has been in existence, the railroad has never once
generated an annual profit. In fact, only one route on Amtrak's
system--the Metroliner, which runs from Union Station in Washington, DC,
to Pennsylvania Station in New York City--generates more revenue than it
costs to operate.
For fiscal year 1998, Amtrak has requested a total of $1,138,000,000
in Federal funds. Of this amount, $751,000,000 is requested for capital
expenses (including an unspecified amount for the Northeast Corridor
Improvement Program), and $387,000,000 is requested for operating
expenses and railroad retirement expenses. Since the railroad received a
total of $364,500,000 in fiscal year 1997 operating expenses, it is
difficult for the Committee to understand how this proposed increase
reflects a step forward on Amtrak's glidepath to self-sufficiency.
The administration has requested a total of $789,450,000 for Amtrak
in fiscal year 1998. Of this amount, $445,450,000 is requested for
capital expenses (including $200,000,000 for the Northeast Corridor
Improvement Program and $23,450,000 to complete the Federal portion of
the Pennsylvania Station redevelopment project). A discussion of the
Committee's funding recommendations for NECIP and Penn Station are
included under the Northeast Corridor Improvement Program header. For
operating expenses, the administration requests $344,000,000. For fiscal
year 1998, the administration has requested that Amtrak operating and
capital funds be appropriated from the highway trust fund. There is no
current authorization to fund Amtrak from the highway trust fund, and
the Committee asserts that it would not be appropriate to pay for
passenger rail costs out of a fund which is comprised of automobile
gasoline tax receipts and other motor vehicle excise taxes.
The Committee has provided a total funding level of $344,000,000 for
Amtrak operating expenses, with the assumption that capital funding for
Amtrak will be provided through a new separate account.
The Committee is concerned that the Amtrak Federal grant request and
the Federal Railroad Administration's budget justification for Amtrak do
not provide sufficient information for the Committee to have a clear
understanding of the railroad's budget request. The Committee will work
with OMB, DOT, Amtrak, and the House Appropriations Committee to develop
a clearer, more informative, and more accurate depiction of Amtrak
operating needs for the fiscal year 1999 budget cycle.
Needed reforms .--Amtrak is struggling under a huge debt load. In
1996, the combined debt and capital lease obligations for which the
company was responsible totaled $986,900,000. Servicing this debt is
taken off the top of Amtrak's operating revenues--in 1996, the interest
paid on the Corporation's debts was $60,200,000. The Committee is
concerned that, as Amtrak assumes more debt as the railroad acquires
more capital equipment, the total debt load and level of interest
expense will continue to rise dramatically. The Committee is also
concerned that Amtrak has transferred Federal capital appropriations to
pay these interest expenses. This practice is contrary to accepted
financial standards, and appears inconsistent with Amtrak's own
statements that capital investment is of paramount importance to the
railroad's future. It appears to the Committee that Amtrak is digging a
hole for itself and the American taxpayers, and the hole is getting
deeper every year.
In addition to the problems of the Corporation's solvency and the
presentation of mandatory passenger rail payments, Amtrak is subject to
labor provisions that affect only railroads and their employees. These
legislative labor provisions include the Federal Employer's Liability
Act, which is a fault-based workers' compensation system governing
compensation for employee on-duty injuries; the Railway Labor Act (which
also applies to airlines), governing labor relations issues of employee
representation, dispute resolution, and negotiation of contracts; the
Railroad Retirement Act, governing railroad employee retirement; and
Rail Passenger Service Act provisions governing employee protective
conditions and restricting Amtrak's ability to contract out services. It
is the Committee's strongly held position that, although members differ
on what reforms should be made, these issues must be addressed this year
because, according to Amtrak's own testimony, it is unlikely that the
railroad will survive through fiscal year 1998, even if funded at the
administration's requested level. And even more importantly, while we
cannot recover the more than $20,000,000,000 in appropriated funds that
have already been lost while waiting for Amtrak to turn itself around,
it is imperative that these difficult and complex issues be squarely
faced now, so that we do not further compound the taxpayers' losses.
There are currently many different legislative proposals to reform
and restructure Amtrak, and to make the railroad more accountable. The
House Transportation and Infrastructure Committee formed a working group
on Amtrak, or a blue ribbon panel, that recently announced its
recommendations. The Senate Commerce Committee reported out its
reauthorization bill, Senate bill 738, the Amtrak Reform and
Accountability Act of 1997, on June 26. The House Transportation and
Infrastructure Committee Subcommittee on Railroads is working on its
Amtrak reauthorization proposal, as well. And the House Appropriations
Committee included a provision in their fiscal year 1998 Transportation
appropriations bill that establishes an independent commission to
conduct an economic analysis of the entire Amtrak system and make
recommendations on route closings and realignments.
The Committee commends the good-faith efforts of the Finance, Budget,
and authorizing committees in both the House and Senate to address the
many serious problems facing Amtrak. The Committee cannot endorse all of
the proposals being put forward, but seeks to aggressively pursue real,
workable solutions for the future of Amtrak that are realistic and make
economic sense.
AEmdbo AF AEmdnm AFCapital expenses. AEmdbo AF AEmdnm AF--The
Committee has not provided any funds for Amtrak capital expenses. On
June 27, 1997, the Senate approved a $2,300,000,000 intercity passenger
rail reserve fund during consideration of Senate bill 949, the Revenue
Reconciliation Act of 1997. Subtitle L--``Intercity Passenger Rail
Fund'', in title VII of Senate bill 949 establishes a fund, subject to
appropriations, that is designed to be equivalent to the amount
generated by one-half cent of revenues from the gasoline tax. If the
rail reserve fund mechanism is retained through conference and enacted,
and the funds are subsequently appropriated, the fiscal year 1998
reserve fund allocation will be $641,000,000, available for Amtrak
capital expenses. In light of the strength of the Senate vote on this
issue, it appears that the Senate conferees have a mandate to
strenuously advocate retaining the reserve fund in reconciliation.
The Committee has included legislative language that provides for the
release of these reserve funds to Amtrak, contingent upon (1) inclusion
of the above-specified intercity passenger rail reserve in the enacted
version of the Revenue Reconciliation Act, and (2) the subsequent
increase of the transportation subcommittee's discretionary allocation
in both budget authority and associated outlays for all fiscal year 1998
costs associated with the $641,000,000 in capital grants. The Secretary
of Transportation will release these funds to Amtrak, whereupon they may
be used for capital purposes, including: the acquisition of equipment,
rolling stock, and other capital improvements; the upgrade of
maintenance facilities; and the maintenance of existing equipment
currently in intercity passenger rail service. In addition, these
capital funds may be used for the payment of interest and principal on
obligations incurred for these new capital investments.
FEDERAL TRANSIT ADMINISTRATION
SUMMARY OF FISCAL YEAR 1998 PROGRAM
The Federal Transit Administration was established as a component of
the Department of Transportation by Reorganization Plan No. 2 of 1968,
effective July 1, 1968, which transferred most of the functions and
programs under the Federal Transit Act of 1964, as amended (78 Stat.
302; 49 U.S.C. 1601 et seq.), from the Department of Housing and Urban
Development.
The missions of the Federal Transit Administration are: to assist in
the development of improved mass transportation facilities, equipment,
techniques, and methods; to encourage the planning and establishment of
urban mass transportation services needed for economical and desirable
urban development; to provide mobility for transit dependents; to
maximize productivity of urban transportation systems; and to provide
assistance to State and local governments and their instrumentalities in
financing such services and systems.
The current authorization for many of the programs funded by the
Federal Transit Administration is contained in the Intermodal Surface
Transportation Efficiency Act, which expires at the end of fiscal year
1997. The Committee's recommendation is based on current law. The
Committee encourages the appropriate legislative committees to
reauthorize the transit programs before the end of the fiscal year to
avoid unnecessary interruption in providing assistance to transit
systems across the Nation.
Funding for the Washington Metropolitan Area Transit Authority is
authorized under Public Law 101 551. Direct appropriations are required
for the Washington Metropolitan Area Transit Authority.
Under the Committee recommendation, a total program level of
$4,684,747,000 would be provided for the programs of the Federal Transit
Administration for fiscal year 1998. This is $101,429,000 more than the
budget request.
The following table summarizes the Committee's recommendations
compared to fiscal year 1997 and the administration's request:
[In thousands of dollars]
Program 1997 enacted\1\ 1998 estimate Committee recommendation
Administrative expenses \2\41,497 47,018 41,497
Formula grants\3\ 2,149,185 3,498,500 2,400,000
Discretionary grants\4\ 1,900,000 650,000 2,000,000
Transit planning and research 85,500 91,800 77,250
University transportation centers 6,000 6,000
Washington Metro 200,000 200,000 160,000
----------------- --------------- --------------------------
Total 4,382,182 4,487,318 4,684,747
\1\Excludes reductions for TASC and awards pursuant to sections 321 and 346 of Public Law 104 205.
\2\An additional $780,000 was made available from formula grants balances.
\3\Includes limitation on obligations of $1,659,185,000 in fiscal year 1997, $3,409,500,000 in fiscal year 1998 estimate, and $1,910,000,000 in Committee recommendation.
\4\Limitation on obligations.
