Existing law gives control of the state park system to the Department of Parks and Recreation, and requires the Director of Parks and Recreation to promote and regulate the use of the state park system in a manner that conserves the scenery, natural and historic resources, and wildlife for the enjoyment of future generations. Existing law authorizes the department to collect fees, rents, and other returns for use of any state park system area, as provided. Existing law prohibits the department from collecting from any group of pupils in kindergarten or grades 1 to 12, inclusive, or their escorts, any fee, rental, or other return for use of any unit in the state park system when the group is visiting the area pursuant to a school outing or field trip under the direction of a school personnel, as provided.

This bill, commencing on July 1, 2024, would require the department to waive the day use entrance fees to a unit of the state park system for any child in the 4th grade, or the 4th grade equivalent, who holds a valid federally issued Every Kid Outdoors pass, as provided. The bill would require the department to post on its internet website information on how to obtain the federal Every Kid Outdoors pass, including a hyperlink to the federal program establishing the pass.

Date of Hearing: April 19, 2023

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Chris Holden, Chair

ABPCA Bill Id:AB 401

Author:(Mathis) – As Introduced Ver:February 2, 2023

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill requires, beginning on July 1, 2024, the Department of Parks and Recreation (State Parks) to waive day use entrance fees, as specified, to a unit of the state park system for any child in the fourth grade, or the fourth grade equivalent, who holds a valid federally issued Every Kid Outdoors pass. In addition, this bill requires State Parks to post on its website information on how to obtain the Every Kids Outdoors pass.

FISCAL EFFECT:

The federal Every Kid Outdoors program issued 158,352 vouchers in California in 2022. Assuming each of these voucher-holders takes advantage of free day use entrance (based on a $12 day use fee) once in a calendar year that they otherwise would have paid for, the estimated revenue loss to State Parks would be approximately $1.9 million (State Park and Recreation Fund (SPRF).)

According to the California Department of Education’s “enrollment by grade” figures, there were approximately 434,000 fourth graders enrolled in 2021-22. If each of these students secures an Every Kid Outdoors pass and is thereby eligible for free day use entrance to state parks under this bill, the estimated revenue loss to State Parks would be approximately $5.2 million (SPRF).

COMMENTS:

1) Purpose. According to the author:

The more we promote access to our state parks, especially within the lives of our children through the Adventure Pass program, the more we can spur an appreciation of the system and the need to maintain it.

2) Adventure Pass. The California State Park Adventure Pass provides free day use entrance for fourth graders and their families at 19 state parks throughout the state. The Budget Act of 2021 allocated $5.6 million for this three-year pilot program. For the 2021 school year, State Parks issued 18,600 Adventure Passes. The 2022 school year (starting September 1, 2022) is ongoing, and, as of March 7, 2023, State Parks has issued 11,470 Adventure Passes.

3) Every Kid Outdoors Pass. This federal program allows fourth graders and their families to visit federally managed lands and waters for free. The pass admits all children under 16 and up to three adults for free at sites that charge entrance fees per person. For locations with a vehicle entrance fee, the pass admits all children under 16 and all adults in up to one passenger vehicle. Some state park systems, such as in New York, Maryland, Indiana, and Wyoming, allow a fourth grader to utilize this federal park pass for the same or similar benefits at state parks within their respective state park systems.

4) Expanding Access to State Parks. Numerous efforts have been made in recent years to increase access to parks and open spaces. State Parks’ Statewide Park Development and Community Revitalization Program has provided $1.16 billion to create new parks and recreation opportunities in underserved communities. According to the Legislative Analyst’s Office, budget augmentations have provide a combined total of about $1.5 billion over a five‑year period, almost all from the General Fund. Of this amount, $1.3 billion has already been appropriated (in fiscal years (FY) 2021‑22 or 2022‑23), $88 million is planned for appropriation in FY 2023‑24, and $124 million is planned for appropriation in a future year. In addition, the state has provided numerous augmentations in recent years to specific legislative‑priority park, museum, and access projects.

Examples of programs include the Outdoor Equity Grants Program at State Parks, which is designed to increase the ability of underserved and at-risk populations to participate in outdoor environmental educational experiences at state parks and other public lands. The Youth Community Access Program at the California Natural Resources Agency provides grant awards to expand access to parks, nature, and places of cultural and historic significance for youth in underserved communities. The State Library Parks Pass provides state park passes to public libraries across the state that may be checked out by library patrons. 5,000 passes were initially distributed to 1,184 public libraries statewide and an additional 28,000 passes are being added to the program this year.

Additionally, there are select discounted or free park admission opportunities available for specific populations. For example, the Distinguished Veteran Pass is a lifetime pass available to an honorably discharged veteran who is a California resident with a qualified disability, was held as a prisoner of war, or received a Medal of Honor. This pass entitles the holder to use of all basic facilities (day use, camping, and boating) in state parks for free. The Golden Bear Pass is valid for one year and provides free vehicle day use access to many parks for California Work Opportunity and Responsibility to Kids Program (CalWORKs) recipients, Supplemental Security Income (SSI) recipients, and those whose incomes fall under a certain threshold. According to State Parks, more than 35,000 Golden Bear Passes have been distributed since the department partnered with CalWORKs.

In response to a multibillion dollar budget shortfall facing the state, the Governor’s January budget for FY 2023-24 proposes several reductions to parks, museums, and access programs.

5) State Park and Recreation Fund (SPRF). Generating sufficient, long-term sources of funding for State Parks operations and maintenance has been an ongoing challenge, raising the question of how far the state should go in discounting fees. The more the state discounts fees, the more the state will need to offset lost revenues with the General Fund or cut or eliminate other improvements, services, and programs. This is particularly relevant as State Parks’ large backlog of deferred maintenance is estimated at over $1 billion.

The SPRF is the department’s primary ongoing funding source and is mostly supported by user fees. The FY 2020-21 budget authorized a transfer of up to $150 million from the General Fund to help backfill a projected SPRF shortfall across FY 2019-20 and FY 2020-21. No General Fund backfills were requested or approved for FY 2021-22 or FY 2022-23. State Parks has not requested a General Fund backfill for SPRF in the FY 2023-24 budget.

6) Related Legislation. AB 308 (Alanis) requires State Parks to issue an eligible Gold Star Family member free day use of any unit of the state park system that is operated by the state. AB 308 is pending in this committee.

AB 618 (Bauer-Kahan), among other provisions, requires State Parks to grant a 25% discount for specified campsite or lodging reservations to the bearer of a Golden Bear Pass. AB 618 is pending in this committee.

Analysis Prepared by: Nikita Koraddi / APPR. / (916) 319-2081

Date of Hearing: March 28, 2023

ASSEMBLY COMMITTEE ON WATER, PARKS, AND WILDLIFE

Rebecca Bauer-Kahan, Chair

ABPCA Bill Id:AB 401 (

Author:Mathis) – As Introduced Ver:February 2, 2023

SUBJECT: State parks: park entrance fees: waivers: 4th grade children

SUMMARY: Requires the Department of Parks and Recreation (State Parks) to waive day use entrance fees for any child in fourth grade with a valid federal pass, as provided, as of July 1, 2024. Specifically, this bill:

1. Requires State Parks to waive day use entrance fees to a unit of the state park system for any child in the fourth grade, or the fourth grade equivalent, who holds a valid federally issued “Every Kid Outdoors” pass.
2. Specifies that the entrance fee waiver applies to both of the following:
   1. A per vehicle entrance fee, including all passengers in the vehicle, as long as the vehicle is a single, private, noncommercial vehicle that is used to transport the eligible child to the unit of the state park system; and
   2. A per person entrance fee, including up to three adults, 16 years of age and above, and all children, 15 years of age and younger, accompanying the eligible child.
3. Makes the provisions of this bill operative on July 1, 2024.

EXISTING LAW:

1. Establishes the California state park system and vests State Parks with control of the state park system and responsibility for administering, protecting, developing, and interpreting state parks for the use and enjoyment of the public. Requires State Parks to protect the state park system from damage and to preserve the peace therein [Public Resources Code (PRC) § 5001 et seq.].
2. Limits attendance at the state park system to within limits established by carrying capacity (PRC § 5001.96 and 5019.5).
3. Authorizes State Parks to collect fees, rents, and returns for use of any state park system area with some exceptions including:
   1. Prohibits State Parks from collecting any fee from any group of pupils in kindergarten through 12^th grades, or their escorts, when on a field trip or school outing at a state park unit, except at Hearst San Simeon State Historic Monument (PRC § 5010.2); and
   2. Authorizes State Parks to provide discounted passes to certain groups of people including fourth graders, seniors over the age of 62, veterans, and low-income residents, as defined (PRC § 5010.2.5, § 5011, § 5011.5, § 5011.6).

FISCAL EFFECT: Unknown. This bill is keyed fiscal.

COMMENTS:

1. Purpose of this bill. This bill would continue and expand the existing California State Park Adventure Pass, which offers free admission for fourth graders at 19 state park locations. The Adventure Pass will sunset on July 1, 2024. This bill requires State Parks to waive day use entrance fees to a unit of the state park system for any child in the fourth grade who holds a valid federally issued “Every Kid Outdoors” pass.
   
   According to the author, “[t]he more we promote access to our state parks, especially within the lives of our children through the Adventure Pass program, the more we can spur an appreciation of the system and the need to maintain it.”
2. Background. In partnership with the First Partner’s Office and the Natural Resources Agency, the California State Park Adventure Pass provides free entry for fourth graders and their families at 19 state parks throughout the state. This program was enacted through the budget in 2021 (SB 129 and AB 148), with $5.6 million appropriated for the three-year pilot program. For the 2021 school year, 18,600 Adventure Passes were issued by State Parks. The 2022 school year (starting September 1, 2022) is ongoing and 11,470 Adventure Passes have been issued through March 7, 2023.
   
   The Adventure Pass allows free day use admittance for a fourth grader from California, their family (up to three adults and other children), and friends. This pass is valid for the one-year period during which the child is a fourth grader or fourth grade equivalent, from September 1 to August 31. In order to obtain a pass, the parent or guardian can sign up online through ReserveCalifornia.com or call (800) 444-7275. The parent or guardian is required to provide their name, address, phone number, and email address, and the Adventure Pass is sent to their email. For individuals who do not have access to a smartphone, computer, or printer and/or do not have an email address, they can obtain a pass by visiting a State Parks Pass Sales Office. Once the pass is obtained, it can be printed or displayed on a smartphone.

The California State Park Adventure Pass is accepted at the following 19 state parks:

• Anza-Borrego Desert State Park (Nearest cities – Borrego Springs and Julian)
• Calaveras Big Trees State Park (Arnold)
• California Citrus State Historic Park (Riverside)
• California State Railroad Museum (Sacramento)
• Chino Hills State Park (Chino Hills)
• Clear Lake State Park (Kelseyville)
• Colonel Allensworth State Historic Park (Earlimart)
• Cuyamaca Rancho State Park (Julian)
• Empire Mine State Historic Park (Grass Valley)
• Hendy Woods State Park (nearest city – Philo)
• Hollister Hills State Vehicular Recreation Area (Gabilan Mountains, an hour drive from San Jose)
• Jack London State Historic Park (Glen Ellen)
• Jedediah Smith Redwoods State Park (Crescent City)
• Millerton Lake State Recreation Area (Fresno)
• Morro Bay State Park Museum of Natural History (Morro Bay)
• Sue-meg State Park (Trinidad)
• Samuel P. Taylor State Park (Lagunitas)
• Seacliff State Beach (Santa Cruz)
• Silver Strand State Beach (Coronado)

Every Kid Outdoors pass. The federal government has an 8-year old program, “Every Kid in a Park” that has since been renamed “Every Kid Outdoors,” that allows fourth graders and their families to visit federally managed lands and waters for free. The concept of the program was to give every child a chance to visit a national park by the time they turn 11 years old. Research shows that participants are more likely to visit parks throughout the rest of their lives if they experience parks with their family or school at age 10.^[1]

The Every Kid Outdoors pass can be obtained by visiting https://everykidoutdoors.gov/. No registration is required, and the only information collected is the zip code of the person obtaining the pass. The pass must be printed, and each pass has a unique code so it cannot be shared. The pass admits all children under 16 and up to three adults for free at sites that charge entrance fees per person. For locations with a vehicle entrance fee, the pass admits all children under 16 and all adults in up to one passenger vehicle. A variety of federal agencies participate in the pass program, including National Park Service (NPS), U.S. Bureau of Land Management, U.S. Bureau of Reclamation, National Oceanic and Atmospheric Administration, U.S. Fish and Wildlife Service, U.S. Forest Service, and U.S. Army Corps of Engineers.

Some state park systems such as New York, Maryland, Indiana, and Wyoming allow a fourth grader to utilize this federal park pass for the same or similar benefits at state parks within their respective state park system.

Other free passes and free admission days. The State Parks Golden Bear Pass is free and valid for one year and provides vehicle day-use access to many state parks for CalWORKs recipients, SSI recipients, and those whose incomes fall under a certain threshold.

In collaboration with the California State Library, State Parks has placed approximately 33,000 park passes at local libraries throughout the state through the Parks Library Pass program.^[2] Any library card holder can check out a park pass for free for the allotted number of days allowed by the local library.

In recent years, there have been some "free admission" days at state parks, including free admission to veterans on Memorial Day and Veterans Day and a Green Friday Program in 2015 and 2016, an alternative to Black Friday shopping.

NPS allows free admission to more than 400 national parks on five different days and weekends in 2023.^[3] According to NPS, national parks are always economical, with entrance fees typically from $5 to $35.^[4]
Outdoors for All. The California Outdoors for All initiative is focused on equitably expanding outdoor access to all Californians through focused investments in open space infrastructure, outdoor programming, and improvements to state systems. These efforts seek to undo deeply ingrained inequities, and preserve the cherished natural, cultural, and tribal resources as the fight against climate change intensifies. Additionally, the Outdoors for All initiative further advances two other state priorities, Nature Based Solutions and 30x30, by investing in California’s public lands and natural resources. A draft strategy is planned for release in Spring 2023.

1. Policy considerations. State Parks has already established procedures for obtaining the Adventure Pass. This bill requires fourth graders to be holders of a valid federally issued “Every Kid Outdoors” pass. While it makes sense to encourage fourth graders to obtain both passes, it may not be prudent to tie the provisions of this bill to a federal program that expires in 2026. The author may want to consider clarifying this provision of the bill.
2. Arguments in support. Several organizations write in support, with some stating that “[t]his bill capitalizes and expands on the successes of both EKO [Every Kid Outdoors] and the adventure pass by removing the adventure pass’ sunset date of July 1st, 2024, and expanding the adventure pass to include every California state park: an improvement that is in the spirit of the program, mirrors President Obama’s EKO, and makes the adventure pass accessible to all of California’s children.”
   
3. Related legislation. AB 2128 (Cooley), 2021-22 Session, would have required State Parks to grant 50 percent discounted admission to the general public to each unit of the state park system operated by State Parks every year on September 9th, California Admissions Day. AB 2128 died in Senate Appropriations Committee.
   
   SB 129 (Skinner), Chapter 69, Statutes of 2021, and AB 148 (Committee on Budget), Chapter 115, Statutes of 2021, established the Adventure Pass and appropriated funding for a three-year pilot program.
   
   AB 542 (Mathis), 2021-22 Session, was substantially similar to this bill. AB 542 died in Assembly Appropriations Committee.
   
   AB 1358 (Cooley), 2017-18 Session, would have provided 50 percent discounted admission to California State Parks on California Admission Day. AB 1358 was vetoed by Governor Brown. The veto message stated: “While this bill is well-intentioned, the department already has the authority to offer discounted or free park admissions to the public. Furthermore, for the past few years the department has worked closely with the Parks Forward Commission to develop initiatives to expand visitations, increase access, and ensure the system's long-term sustainability. The public and our state parks are better served by allowing the department the flexibility to manage its operations without mandates that may harm its fiscal stability.”
   
   AB 150 (Olsen), Chapter 688, Statutes of 2013, authorizes State Parks to offer veterans and active duty or reserve military personnel of the U.S. Armed Forces or the National Guard, free day use access, or reduced fee access, to California state parks on Memorial Day and Veterans Day.
   

REGISTERED SUPPORT / OPPOSITION:

Support

Bolsa Chica Land Trust
California Outdoor Recreation Partnership
Latino Outdoors
River Otter Ecology Project, The
Sierra Club California
Visalia Unified School District

Opposition

None on file

Analysis Prepared by: Keith Cialino / W., P., & W. / (916) 319-2096

1. Colleen Dilenschneider, (2019, September 4), School Groups vs. Family Visitors: Which Kids Come Back As Adults? (DATA). Impacts Experiences. https://www.colleendilen.com/2019/09/04/school-group-vs-family-visitors-which-kids-come-back-as-adults-data/. ↑

2. See https://www.parks.ca.gov/30806 for more information. ↑

3. See https://www.nps.gov/planyourvisit/fee-free-parks.htm for more information. ↑

4. See https://www.nps.gov/aboutus/entrance-fee-prices.htm for more information. ↑