[Congressional Record Volume 152, Number 52 (Thursday, May 4, 2006)]
[Senate]
[Pages S4073-S4075]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. NELSON of Nebraska (for himself and Mr. Domenici):
  S. 2751. A bill to strengthen the National Oceanic and Atmospheric 
Administration's drought monitoring and forecasting capabilities; to 
the Committee on Commerce, Science, and Transportation.
  Mr. NELSON of Nebraska. Mr. President, I rise today to introduce 
legislation that would establish the ``National Integrated Drought 
Information System'' (NIDIS) within the National

[[Page S4074]]

Oceanic and Atmospheric Administration (NOAA) for purposes of improving 
drought monitoring and forecasting capabilities.
  Over the last decade, several severe and long-term droughts have 
occurred in the United States. Recent severe drought conditions across 
the Nation and in particular in the West have created life-threatening 
situations, as well as financial burdens for both government and 
individuals.
  Extremely dry conditions have led to numerous forest and rangeland 
fires, burning hundreds of thousands of acres of land, destroying homes 
and communities, and eliminating critical habitats for wildlife and 
grazing lands for livestock. The subsequent ash and sediment loading 
threatens the health of our streams. In addition to the millions of 
board-feet of timber lost, these fires have cost hundreds of millions 
of dollars to fight and have put thousands of lives at risk.
  The droughts have caused shortages of grain and other agricultural 
products resulting in soaring prices that will be passed on to 
consumers. In addition, deteriorating soil conditions and lack of 
forage are devastating the farm and ranching communities. The droughts 
have negatively affected livestock market prices and caused the 
premature selloffs of herds.
  The droughts have threatened municipal water supplies, causing many 
communities to develop new water management plans which institute water 
restrictions and other water conservation measures. Drought causes 
social, economic and environmental consequences including negative 
effects on commerce and industry, tourism, air, water and other natural 
resources, and quality of life for our citizens, ranging from limits on 
recreational opportunities to loss of employment.
  The fiscal impacts of drought on individuals and governments are 
significant. According to NOAA, the federal government spends on 
average $6-8 billion per year on drought. The most devastating of these 
was the 1988 drought in the central and eastern U.S. which caused 
severe losses to agriculture and related industries totaling $40 
billion and an estimated 5,000-10,000 deaths.
  The issue of drought is one I have been involved with for many years. 
Fortunately, drought conditions are improving in Nebraska, but we have 
endured a number of very difficult years struggling with the impact 
drought has had on our economy and environment and the social 
implications that go along with a disaster like this.
  One of my biggest frustrations the past few years as an elected 
official, trying to help the areas of my State devastated by drought, 
has been making people understand that this drought really was a 
disaster--as much as a hurricane, or an earthquake, or a tornado.
  I even named the drought in Nebraska--Drought David--in an effort to 
crystallize it so people could see that it is the same kind of 
experience as any other natural disaster.
  Unlike other natural disasters, however, droughts are much more 
difficult to identify. It is hard to miss an oncoming flood or 
tornado--or their immediate aftermath. Drought, and its effects, is 
much harder to quantify. It develops slowly; it doesn't necessarily 
have a beginning point or an ending point but it spans over an extended 
period of time.
  Because it is difficult to forecast and plan for droughts, it is 
especially important that we have programs in place such as the 
National Drought Mitigation Center at the University of Nebraska-
Lincoln. The Drought Mitigation Center, among other things, maintains a 
web-based information clearinghouse, provides drought monitoring, 
prepares the weekly U.S. Drought Monitor which covers all 50 States, 
and develops drought policy and planning techniques. I believe it is 
crucial to encourage more investment in research programs such as the 
Drought Mitigation Center.
  The research done upfront in monitoring drought trends will help our 
capabilities to mitigate and respond to its effects in a much more 
effective manner. It is cost effective to support programs such as the 
National Drought Mitigation Center and I advocate for continued support 
for this important program.
  The National Drought Policy Commission stated in their May 2000 
report to Congress that ``Drought is the most obstinate and pernicious 
of the dramatic events that Nature conjures up. It can last longer and 
extend across larger areas than hurricanes, tornadoes, floods and 
earthquakes . . . causing hundreds of millions of dollars in losses, 
and dashing hopes and dreams.'' Among its recommendations to move the 
country toward a more proactive approach to drought preparedness and 
response, the Commission called for improved ``collaboration among 
scientists and managers to enhance the effectiveness of observation 
networks, monitoring, prediction, information delivery, and applied 
research and to foster public understanding of and preparedness for 
drought.''
  The call for improved drought monitoring and forecasting has also 
been advocated by the Western Governors' Association (WGA). In the WGA 
policy resolution adopted in June 2005, ``Future Management of 
Drought,'' the Governors state that NIDIS ``would provide water users 
across the board--farmers, ranchers, utilities, tribes, land managers, 
business owners, recreationalists, wildlife managers, and decision-
makers at all levels of government--with the ability to assess their 
drought risk in real time and before the onset of drought, in order to 
make informed and timely decisions that may mitigate a drought's 
impacts. The Governors urge Congress and the President to authorize 
NIDIS and provide funding for its implementation.''
  NIDIS has also become a key component of the multi-national effort to 
create the Global Earth Observation System of Systems (GEOSS), a 
mechanism for linking the individual networks of satellites, ocean 
buoys, weather stations and other instruments scattered across the 
globe. The U.S. Integrated Earth Observation System (IEOS), the U.S. 
contribution to GEOSS, has identified NIDIS as one of six ``near-term 
opportunities'' in their Strategic Plan.
  Finally, the Administration supports this program. Funding for NIDIS 
is included in the President's FY 2007 budget request.
  The National Integrated Drought Information System Act of 2006 that 
Senator Domenici and I are introducing today would authorize the much 
needed drought early warning system envisioned by the National Drought 
Policy Commission, the Western Governors' Association, and the 
Integrated Earth Observation System. If enacted, this bill will allow 
our Nation to become much more proactive in mitigating and avoiding the 
costly impacts and contentious conflicts that so often happen today 
when water shortages and droughts occur.
  I ask unanimous consent that the text of the bill be printed in the 
Record.
  There being no objection, the text of the bill was ordered to be 
printed in the Record, as follows:

                                S. 2751

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``National Integrated Drought 
     Information System Act of 2006''.

     SEC. 2. NOAA PROGRAM TO MONITOR AND FORECAST DROUGHTS.

       (a) In General.--The Under Secretary of Commerce for Oceans 
     and Atmosphere shall establish a National Integrated Drought 
     Information System within the National Oceanic and 
     Atmospheric Administration.
       (b) System Functions.--The System shall--
       (1) provide an effective drought early warning system 
     that--
       (A) is a comprehensive system that collects and integrates 
     information on the key indicators of drought in order to make 
     usable, reliable, and timely drought forecasts and 
     assessments of drought, including assessments of the severity 
     of drought conditions and impacts;
       (B) communicates drought forecasts, drought conditions, and 
     drought impacts on an ongoing basis to--
       (i) decisionmakers at the Federal, regional, State, tribal, 
     and local levels of government;
       (ii) the private sector; and
       (iii) the public,

     in order to facilitate better informed, more timely decisions 
     and support drought mitigation and preparedness programs that 
     will reduce impacts and costs; and
       (C) includes timely (where possible real-time) data, 
     information, and products that reflect local, regional, and 
     State differences in drought conditions; and
       (2) coordinate, and integrate as practicable, Federal 
     research in support of a drought early warning system, 
     improved

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     forecasts, and the development of mitigation and preparedness 
     tools and techniques;
       (3) build upon existing drought forecasting, assessment, 
     and mitigation programs at the National Oceanic and 
     Atmospheric Administration, including programs conducted in 
     partnership with other Federal departments and agencies and 
     existing research partnerships, such as that with the 
     National Drought Mitigation Center at the University of 
     Nebraska-Lincoln; and
       (4) be incorporated into the Global Earth Observation 
     System of Systems.
       (c) Consultation.--The Under Secretary shall consult with 
     relevant Federal, regional, State, tribal, and local 
     government agencies, research institutions, and the private 
     sector in the development of the National Integrated Drought 
     Information System.
       (d) Cooperation From Other Federal Agencies.--Each Federal 
     agency shall cooperate as appropriate with the Under 
     Secretary in carrying out this Act.
       (e) Drought Defined.--In this section, the term ``drought'' 
     means a deficiency in precipitation--
       (1) that leads to a deficiency in surface or sub-surface 
     water supplies (including rivers, streams, wetlands, ground 
     water, soil moisture, reservoir supplies, lake levels, and 
     snow pack); and
       (2) that causes or may cause--
       (A) substantial economic or social impacts; or
       (B) substantial physical damage or injury to individuals, 
     property, or the environment.

     SEC. 3. AUTHORIZATION OF APPROPRIATIONS.

       There are authorized to be appropriated to the Secretary of 
     Commerce for use by the Under Secretary of Commerce for 
     Oceans and Atmosphere in implementing section 2--
       (1) $8,000,000 for fiscal year 2007;
       (2) $9,000,000 for fiscal year 2008;
       (3) $10,000,000 for each of fiscal years 2009 and 2010; and
       (4) $11,000,000 for each of fiscal years 2011 and 2012.

  Mr. DOMENICI. Mr. President, I rise today to join Senator Nelson of 
Nebraska to introduce the National Integrated Drought Information 
System Act of 2006. I would like to thank Senator Ben Nelson; his 
strong leadership and hard work on this bill has been key in bringing 
us forward on this important issue.
  Drought is a unique emergency situation; it creeps in unlike other 
abrupt weather disasters. Without a national drought policy we 
constantly live not knowing what the next year will bring. 
Unfortunately, when we find ourselves facing a drought, towns often 
scramble to drill new water wells, fires often sweep across bone dry 
forests and farmers and ranchers are forced to watch their way of life 
blow away with the dust. This year, my home State of New Mexico is 
facing a very real threat of devastating drought, as our snow pack was 
far below average.
  We must be vigilant and prepare ourselves for quick action as this 
next drought cycle begins. Better planning on our part could limit some 
of the damage felt by drought. I submit that this bill is the exact 
tool needed for facilitating better planning.
  This Act establishes the National Integrated Drought Information 
System within the National Oceanic and Atmospheric Administration to 
improve national drought preparedness, information collection and 
analysis. This information system collects and integrates information 
on key indicators of drought in order to make usable, reliable and 
timely drought forecasts and assessments. This information will be 
disseminated to federal, state, tribal and local decision makers in 
order to better prepare them for the effects of drought.
  The impacts of drought are also very costly. According to NOAA, there 
have been 12 different drought events since 1980 that resulted in 
damages and costs exceeding $1 billion each. In 2000, severe drought in 
the South-Central and Southeastern states caused losses to agriculture 
and related industries of over $4 billion. Western wildfires that year 
totaled over $2 billion in damages. The Eastern drought in 1999 led to 
$1 billion in losses. These are just a few of the statistics.
  On April 18, 2006, the Texas Agriculture Experiment Station predicted 
a dramatic decrease in water flows and reservoir storage throughout New 
Mexico. Early predictions indicate that river water supply will be at 
54 percent due primarily to receiving half our annual snow pack and 
above average temperatures in my state. Additionally, several of our 
reservoirs are at severely diminished capacity. Specifically, the 
Elephant Butte, El Vado and Caballo reservoirs will all be below 10 
percent of capacity by Labor Day. Several New Mexico communities have 
already begun to institute water restrictions in preparation for what 
is predicted to be one of the worst years on record. As this drought 
persists, I want to ensure each New Mexican that I am committed to 
doing everything possible to make sure they have the tools and 
information they need to make the best decisions.
  While drought affects the economic and environmental well-being of 
the entire nation, the United States has lacked a cohesive strategy for 
dealing with serious drought emergencies. As many of you know, the 
impact of drought emerges gradually rather than suddenly, as is the 
case with other natural disasters.
  I am pleased to be following through on what I started in 1997. The 
bill that we are introducing today is the next step in implementing a 
national, cohesive drought policy. The bill recognizes that drought is 
a recurring phenomenon that causes serious economic and environmental 
loss and that a national drought policy is needed to ensure an 
integrated, coordinated strategy.
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