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“EXPLORE America250: Celebrating One Year of the Expanding Public Lands Outdoor Recreation Experiences Act”

House EXPLORE America250: Celebrating One Year of the Expanding Public Lands Outdoor Recreation Experiences Act

January 21, 2026 (recording here)

HEARING INFORMATION

Witnesses & Written Testimony (Panel One):

• Mr. Thomas Heinlein: Assistant Director for National Conservation Lands and

  Community Partnerships, Bureau of Land Management, Washington, DC

• Mr. Gordon “Gordie” Blum: Associate Deputy Chief, U.S. Forest Service, Washington, DC

Witnesses & Written Testimony (Panel Two):

• Ms. Jess Turner: President, Outdoor Recreation Roundtable, Washington, DC

• Mr. Taylor Schmitz: Senior Vice President, Congressional Sportsmen’s Foundation, Washington, DC

• Mr. Jason Curry: Director, Utah Division of Outdoor Recreation, Salt Lake City, UT

• Mr. David Duncan: President, American Battlefield Trust, Washington, DC

• Mr. Matt Wade: Executive Director, American Mountain Guides Association, Boulder, CO

• Mr. Louis Geltman: Vice President of Policy & Government Relations, Outdoor Alliance, Washington, DC

Keywords mentioned:

• Veteran transition support, outdoor recreation therapy, PTSD and TBI recovery, EXPLORE Act implementation, agency staffing capacity, interagency coordination, permitting reform, guided recreation access, public lands access, mental health benefits of outdoors, Gold Star family engagement, active-duty and veteran outreach, recreation workforce pathways, data modernization, Good Neighbor authority.

IN THEIR WORDS

OPENING STATEMENTS FROM THE SUBCOMMITTEE

• Chair Westerman opened the subcommittee hearing by celebrating the one-year anniversary of the Expanding Public Lands Outdoor Recreation Experiences (EXPLORE) Act. He described the bipartisan legislation as a landmark achievement designed to strengthen the $1.2 trillion outdoor recreation economy and improve access for all Americans. The Chair highlighted local successes in Arkansas, noting that the Act protected affordable vacation options like rock climbing and mountain biking in national forests. He outlined four core principles of the law—access, conservation, innovation, and transparency—while citing the distribution of 150,000 free passes to fourth graders as a key milestone. Westerman also commended the administration’s efforts to digitize recreation passes and streamline permitting processes for outdoor guides and outfitters. Finally, he expressed gratitude to the advocacy groups and federal agencies that supported the implementation of the Act over the past year.

• Ranking Member Huffman acknowledged that the EXPLORE Act was a positive bipartisan achievement for the nation’s public lands and waters. However, he expressed deep concern that the hearing ignored the significant damage he believed the administration was currently inflicting on public agencies. He criticized the majority for failing to hold the President accountable and accused the administration of running a corrupt grift from the White House. Huffman specifically condemned efforts to place the President’s name on park passes and other public property, calling the practice a shameful disgrace. He argued that the current political climate was not normal and that the President's actions abroad were harming American credibility with global allies. Ultimately, the Ranking Member refused to join in the celebration, stating that he would not normalize what he viewed as a threat to democracy and public land integrity.

SUMMARY OF KEY POINTS (PANEL ONE)

• Mr. Heinlein testified on the Department of the Interior’s progress implementing the EXPLORE Act and described his role as BLM’s Assistant Director for National Conservation Lands and community partnerships while serving as Acting Utah State Director. He stated that DOI managed roughly 480 million acres of federal land and emphasized the scale of BLM recreation, including broad public access across BLM lands and significant annual visitation. He framed the EXPLORE Act as a landmark bipartisan effort to expand outdoor recreation, support rural economies, and enhance quality of life, and he noted that DOI had established an implementation framework through Secretary’s Order 3435. He said DOI had prioritized stakeholder engagement and interagency coordination, including work with gateway communities, Tribes, and state and local governments, along with coordination with the private sector for data, transparency, and technology upgrades. He described DOI and BLM actions such as recreation resource inventories, updates to climbing guidance, streamlining filming permits, and steps to expand and support recreational shooting ranges. He also highlighted accessibility initiatives, engagement efforts for military members, veterans, and youth, and modernization of permitting and passes, including the America the Beautiful pass in digital format, while emphasizing continued collaboration and oversight as implementation continued.

• Mr. Blum testified on Forest Service implementation of the EXPLORE Act, expressed condolences on the passing of Chairman LaMalfa, and emphasized his gratitude to Congress and pride in agency staff. He stated that recreation drove rural prosperity and described high national forest visitation levels and associated economic and employment benefits. He outlined the Forest Service’s extensive infrastructure responsibilities and argued that maintaining roads, trails, and recreation sites remained essential to keeping public lands open, safe, and accessible. He highlighted the Great American Outdoors Act as a key tool for addressing deferred maintenance, described completed and ongoing projects, and said reauthorization would sustain progress. He described EXPLORE Act implementation examples including long-distance biking route development, progress on target shooting access, restoration planning at the Albert Pike recreation area, and a nationwide inventory of accessible recreation opportunities to guide future investments. He also cited initiatives supporting veterans, digitization of the America the Beautiful pass, modernization of recreation permitting, expanded use of Good Neighbor Authority in disaster recovery, and forthcoming visitor tools such as a national recreation strategy and a mobile app to help the public plan trips and access information.

• Chair Westerman asked what steps remained before overnight camping could be restored in the Ouachita National Forest and when the public could expect access. Mr. Blum responded that day-use access had been restored, suitable locations for overnight camping had been identified, and the Forest Service still needed to complete formal design work and solicit bids before construction could proceed.

  Chair Westerman asked whether the Ouachita campground restoration approach could be replicated across the National Forest System and what barriers might exist. Mr. Blum stated that while Ouachita had unique challenges, the Forest Service had workable models for campground development, including partnerships with concessionaires and state partners through Good Neighbor Authority.

  Chair Westerman asked for an update on forthcoming BLM guidance implementing the EXPLORE Act’s protections for fixed rock-climbing anchors in wilderness areas. Mr. Heinlein stated that DOI and BLM were making progress on draft guidance consistent with Section 122, coordinating across bureaus and with the Forest Service, and considering implementation details raised by stakeholders.

  Chair Westerman asked whether the agencies would commit to expedited implementation of the fixed-anchor provision due to safety concerns. Mr. Blum committed to expedited completion and stated that draft guidance would be released for public engagement before being finalized.

• Ranking Member Neguse asked whether the Forest Service planned to hire seasonal staff given recent workforce reductions affecting trail maintenance. Mr. Blum stated that the Forest Service planned to hire seasonal employees, particularly in recreation, to meet demand.

  Ranking Member Neguse asked for an update on implementation of EXPLORE Act provisions addressing aquatic invasive species, including zebra mussels, and requested agency commitments. Mr. Heinlein stated that DOI had taken initial steps to establish the program pending appropriations and that BLM would continue working with state partners while applying urgency to the issue.

• Rep. Maloy asked to confirm that DOI would not subject fixed rock-climbing anchors to minimum requirements analysis that could delay access. Mr. Heinlein responded that the Act’s intent was clear and that the provision was central to the draft guidance under development for public review.

  Rep. Maloy asked whether DOI would consider reestablishing a dissolved external working group of sportsmen and outdoor stakeholders. Mr. Heinlein stated that he would need to consult with the Department and committed to providing a response for the record.

  Rep. Maloy asked how the Forest Service was preventing internal review processes from undermining congressional intent to increase access under the EXPLORE Act. Mr. Blum stated that agency leadership was reforming internal policies to reduce barriers and better align implementation with congressional intent.

• Rep. Lee asked Mr. Blum for an update on progress identifying long-distance bike trails under the EXPLORE Act and the expected timeline for completion. Mr. Blum stated that the Forest Service had identified more than the required number of candidate trails, was prioritizing those with the highest feasibility, and would follow up with more specific timelines.

  Rep. Lee asked Mr. Heinlein how BLM was engaging the rock-climbing community and whether a working group might be reinstated. Mr. Heinlein stated that BLM was actively engaging climbers and partner agencies, that communication was ongoing even without a formal working group, and that he would follow up on the possibility of reestablishing one.
  

SUMMARY OF KEY POINTS (PANEL TWO)

• Ms. Turner expressed gratitude to the subcommittee for its leadership in advancing the historic bipartisan recreation package. She highlighted that the outdoor recreation industry generated $1.2 trillion in economic impact and supported five million American jobs. Turner testified that the industry was essential to physical and mental health and provided wide-ranging benefits for the nation’s future. She reported that one year after its passage, the EXPLORE Act was already delivering progress through expanded digital access to America the Beautiful passes, including Every Kid Outdoors participation for fourth graders. The witness also noted that the BLM was expanding accessible trails and making strides in guiding and outfitting permit reforms. She concluded by urging federal agencies to continue working collaboratively through the Federal Interagency Council on recreation to ensure internal alignment and efficient use of resources.

• Mr. Schmitz testified that the EXPLORE Act was one of the most significant outdoor recreation bills ever enacted and highlighted its importance for hunting, fishing, and recreational shooting traditions. He emphasized Section 123’s role in improving access for recreational shooters and noted the substantial conservation funding generated through excise taxes on sporting equipment. He stated that limited access to public shooting ranges remained a major barrier and urged agencies to develop ranges where dispersed shooting closures were considered. He encouraged agencies to leverage partnerships and funding sources, including Pittman–Robertson funds, to build well-equipped ranges. He also highlighted the importance of expanded Good Neighbor Authority to support forest health, wildfire resilience, and recreation infrastructure. He concluded by expressing support for full implementation and continued collaboration.

• Mr. Curry testified on behalf of Utah and other states with significant federal land ownership, expressing strong support for the EXPLORE Act’s bipartisan passage. He described outdoor recreation as a nonpartisan driver of economic growth, public health, and community well-being, citing research linking outdoor access to reduced healthcare costs and improved mental health. He emphasized the role of state offices of outdoor recreation and the importance of coordination between federal agencies and state and local governments. He stated that many EXPLORE Act provisions explicitly required such coordination and described this as a source of optimism for rural communities. He noted early positive signs, including secretarial orders from DOI, and expressed hope for similar action from USDA. He concluded by urging agencies to treat full implementation of the Act as a core policy priority.

• Mr. Geltman testified that the EXPLORE Act marked a major milestone following years of bipartisan legislative efforts to reduce barriers to outdoor recreation. He stated that while implementation had been a priority for the administration, it had been hindered by significant staffing reductions at DOI and the Forest Service. He warned that these losses threatened the ability of agencies to fully realize the Act’s benefits. He highlighted positive progress on recreation inventories and visitor use data but expressed concern about delays in climbing guidance and potential deviations from congressional intent. He also raised concerns regarding implementation of motorized and non-motorized access provisions. He concluded by urging Congress to ensure agency capacity and adherence to the Act’s intent.

• Mr. Wade focused his testimony on Title III of the EXPLORE Act, which addressed long-standing barriers in outfitter and guide permitting. He explained that outdated and inconsistent permitting systems had historically prevented guides from providing recreational access, sometimes for years at a time. He stated that Title III represented a major structural reform designed to improve efficiency, consistency, and access while supporting guide livelihoods. He praised federal agencies for early implementation efforts and for engaging stakeholders in the process. He cautioned, however, that full success would require sufficient staffing, extensive training, new digital systems, and clear guidance, and he urged the use of interim directives followed by public notice and comment to ensure transparency and alignment with congressional intent.

• Mr. Duncan testified that the EXPLORE Act significantly strengthened the American Battlefield Protection Program, which he described as one of the most successful public–private partnerships in federal policy. He explained that the program’s dollar-for-dollar matching structure had enabled the preservation of more than 61,000 acres of battlefield land across 25 states. He emphasized that provisions in the EXPLORE Act allowing nonprofits and tribes to apply directly for grants had dramatically improved efficiency, reducing application timelines from months to a single day in some cases. He noted that these reforms were especially important as the nation approached the 250th anniversary of American independence. He concluded that the Act would enable the preservation of additional Revolutionary War battlefields for future generations.

• Rep. Maloy asked where EXPLORE Act state–federal coordination was working best and where Utah had been ready to assist but lacked federal partnership. Mr. Curry said coordination was strongest at the regional level but uneven locally, citing new shared stewardship agreements and examples of closed campgrounds where state support had not been utilized.

  Rep. Maloy asked where the greatest risk of delay existed. Ms. Turner said delays most threatened health outcomes, veteran access, public-private partnerships, and SOAR permitting reforms, emphasizing urgency and oversight.

• Rep. Lee asked whether agencies were still using minimum-requirements analysis to restrict fixed-anchor maintenance despite statutory clarification.

  Mr. Wade said forthcoming guidance needed to clearly treat fixed anchors as allowable, avoid burdensome analysis, allow safety-driven maintenance without pre-approval, and include climber and guide input. Mr. Geltman said the response fully captured the issue.

• Chair Westerman asked how the EXPLORE Act affected the recreation economy and affordability. Ms. Turner said the Act reduced red tape, modernized infrastructure and data, and helped gateway communities and small businesses capture more recreation spending.

  Chair Westerman asked how reauthorizing the Legacy Restoration Fund would complement EXPLORE. Ms. Turner said EXPLORE modernized policy while the Fund delivered on-the-ground projects tied to America’s 250th anniversary.

  Chair Westerman asked how EXPLORE reforms supported battlefield preservation. Mr. Duncan said streamlined grant processes accelerated land protection and strengthened local economies.

  Chair Westerman asked how EXPLORE expanded shooting-range access. Mr. Schmitz said the Act supported more accessible developed ranges and encouraged leveraging state wildlife agencies and Pittman-Robertson funding.

• Rep. Leger Fernandez asked why staffing levels mattered to delivering EXPLORE Act benefits for small businesses. Ms. Turner said businesses needed certainty and timely permitting, and that EXPLORE reduced duplicative processes so limited staff could operate more efficiently.
  Rep. Leger Fernandez asked about the importance of protecting public lands. Mr. Geltman said public lands were the foundational infrastructure of outdoor recreation and required certainty, protection, and sound management.

• Rep. Kennedy asked about Utah’s economic reliance on federal recreation lands and how Explore improved coordination. Mr. Curry said most recreation occurred on federal lands and that shared stewardship allowed states to invest directly in trails, facilities, and access.
  Rep. Kennedy asked about the therapeutic benefits of outdoor recreation.
  Jason Curry said outdoor experiences produced measurable mental-health benefits for youth. Ms. Turner said outdoor programs had been life-changing for veterans with PTSD or TBI and for at-risk youth.

• Chair Tiffany asked how states and outfitters were responding to Explore Act implementation. Mr. Curry said states and outfitters were highly enthusiastic, particularly about more consistent and modernized permitting systems.
  Chair Tiffany asked about Good Neighbor Authority and recent federal access initiatives. Mr. Schmitz said active forest management improved habitat and access and praised recent DOI actions to expand hunting and fishing access.

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