[Senate Report 104-252]
[From the U.S. Government Publishing Office]
Calendar No. 366
104th Congress Report
SENATE
2d Session 104-252
_______________________________________________________________________
WATER RESOURCES RESEARCH ACT AMENDMENTS OF 1996
_______
April 16, 1996.--Ordered to be printed
_______________________________________________________________________
Mr. Chafee, from the Committee on Environment and Public Works,
submitted the following
R E P O R T
[To accompany H.R. 1743]
The Committee on Environment and Public Works, to which was
referred the bill (H.R. 1743) to amend the Water Resources
Research Act of 1984 to extend the authorization of
appropriations through fiscal year 2000, and for other
purposes, having considered the same, reports favorably thereon
with an amendment and recommends that the bill, as amended, do
pass.
General Statement
This legislation continues the active partnership between
the Federal Government and non-Federal water resources
researchers, a partnership that is centered at the university
community. Specifically, H.R. 1743 extends the authorization
for the State water resources research institutes
(``Institutes'') to address water resources management problems
such as the abundance and quality of water supplies, the
sources of water contaminants and methods of remediation, and
the training of research scientists, engineers and technicians.
These 54 Institutes, which award grant funds for research
projects, have been established at land grant colleges in each
of the 50 States, and in the Virgin Islands, Guam, the District
of Columbia, and Puerto Rico. The strength of the Institutes is
their location within the university community, where a
multitude of disciplines can be concentrated on water problems,
offering new and innovative approaches. Funds are distributed
among the Institutes in every State, assuring the widest
possible geographic search for new information.
In addition to reauthorizing the institutional grants
program, H.R. 1743 reauthorizes the investigation of interstate
or regional water resources problems. Although the regional
water research program, known as the Section 104(g) program,
has not received Federal funding in recent years, greater
regional cooperation among the Institutes and the States should
be occurring.
Authorization for the institutional grants program and the
104(g) program lapsed at the end of fiscal year 1995. Funding
and authority for the institutional grants program was provided
in the fiscal year 1996 Interior Appropriations Act.
Background
The Water Resources Research Act (42 U.S.C. 10301 et seq.)
was originally enacted in 1964. The Act authorizes a program of
water-related research and training of scientists and engineers
to enter fields of water research and management. This program,
administered at the 54 land grant college based-Institutes, is
under the general guidance of the Secretary of the Interior.
The Institutes receive grants disbursed by the Secretary which
must be matched dollar-for-dollar, by non-Federal dollars.
In 1991, the National Academy of Science's National
Research Council released a report with recommendations to
advise the Water Resources Division (WRD) of the U.S.
Geological Survey (USGS) on how it could marshal its resources
most effectively to confront emerging water resources problems.
The National Research Council believes WRD should continue to
administer the grants program authorized under the Water
Resources Research Act. The report stated that the arrangement
between USGS and the Institutes is a benefit to the university
research community, to the States and regions where Institutes
are located, and to the water resources profession in general.
In administering the State water resources research
institute program, the Interior Department has distributed
appropriated funds equally among the Institutes. The
Institutes, in turn, award research funds through a
competitive, peer review process. Each Institute maintains one
or more advisory panels comprised of local, State, and Federal
water officials, representatives from water user groups, and
other interested parties. Annually, these groups develop
research priorities for their States and review the allocation
of funds among various competing projects. In this way,
individual Institutes are able to focus grants on the most
pressing water problems and issues affecting the host State.
This plan has worked well. However, as funding to support
water resources research has become more limited, the Interior
Department should continue to develop plans to strengthen
competition in the distribution of Federal funds to the
Institutes. Since the research agenda for this program is
established by each State to meet its individual needs, the
Department should take great care to ensure that it does not
impose new restrictions on State water resources research
programs and that it considers the priorities and funding
recommendations of the State advisory panels. The Department
shall maintain a level of funding for the institutional grants
at each Institute sufficient to maintain the basic network
infrastructure for efficient State, regional, and national
research coordination, collaboration, education and information
transfer.
The Department should consider making available, on a
competitive basis, a significant percentage of funds expended
on research by the Geological Survey's Water Resources
Division. This external research program could be coordinated
through the State Institutes as a gateway into the academic
community.
States are also encouraged to continue their interstate
cooperation under the Section 104(g) program, which is
reauthorized in this bill, as reported, to address regional and
national issues affecting their individual States. By
continuing and enhancing these collaborative efforts, the State
Institutes can better address critical issues on long-term
water planning and supply that may exceed the resources of one
State.
Section-by-Section Analysis
SECTION 1. FINDINGS
The Water Resources Research Act sets forth a number of
benefits to be achieved through water resources research. This
section adds the goals of encouraging management of water
resources for the productivity of agricultural and natural
resources systems and strengthening long-term water resources
planning, policy development, and problem-solving capacity of
States.
SECTION 2. PURPOSE
The existing Act declares its purpose to be to ``assist the
Nation and the States in augmenting their water resources
science and technology'' as a way to achieve certain
objectives. This section adds as an additional objective long-
term planning and research to meet future water management,
quality and supply changes.
SECTION 3. GRANTS; MATCHING FUNDS
This section makes permanent the requirement that
recipients of the Federal grant match the grant on the basis of
two non-Federal dollars to each Federal dollar.
SECTION 4. GENERAL AUTHORIZATIONS OF APPROPRIATIONS
The 1984 Act authorized $10,000,000 annually to cover all
general water resources research for the Institutes. H.R. 1743
authorizes the institutional grants program at $5,000,000 for
fiscal year 1996; $7,000,000 for fiscal years 1997 and 1998;
and $9,000,000 for fiscal years 1999 and 2000, for a total of
$37,000,000.
SECTION 5. AUTHORIZATION OF APPROPRIATIONS FOR RESEARCH FOCUSED ON
WATER PROBLEMS OF INTERSTATE NATURE
This section authorizes $3,000,000 for each of the fiscal
years 1996 through 2000 for the Section 104(g) program, for a
total of $15,000,000.
section 6. coordination
This section directs the Secretary of Interior to encourage
other Federal agencies to take advantage of the expertise and
capabilities of the Institutes and to facilitate cooperation
with other Federal water resources programs. It establishes a
mechanism for contracts and cooperative agreements between the
Department and other agencies to achieve better coordination.
The Secretary is directed to report to Congress each year on
these coordination efforts.
The Secretary is further authorized to establish an
internship program for qualified undergraduate and graduate
students. Finally, the bill states that nothing in this Act
shall preempt the rights and authorities of any State with
respect to its water resources or management of those
resources.
Hearings
No hearings were held on the bill.
Rollcall Votes
Section 7(b) of rule XXVI of the Standing Rules of the
Senate and the rules of the Committee on Environment and Public
Works require that any rollcall votes taken during
consideration of legislation be noted in the report on that
legislation.
At the business meeting of the Committee on Environment and
Public Works on March 28, 1996, the bill H.R. 1743 was amended
and ordered to be reported favorably by voice vote. No rollcall
vote was taken.
Regulatory Impact
In compliance with Section 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee makes the following
evaluation of the regulatory impact of the bill.
The bill does not create any additional regulatory burdens.
Cost of Legislation
Section 403 of the Congressional Budget and Impoundment
Control Act requires that a statement of the cost of the
reported bill, prepared by the Congressional Budget Office, be
included in the report. That statement follows:
U.S. Congress,
Congressional Budget Office,
Washington, DC, April 15, 1996.
Hon. John H. Chafee,
Chairman, Committee on Environment and Public Works, U.S. Senate,
Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 1743, a bill to
amend the Water Resources Research Act of 1984 to extend the
authorizations of appropriations through fiscal year 2000, and
for other purposes.
Enactment of H.R. 1743 would not affect direct spending or
receipts. Therefore, pay-as-you-go procedures would not apply
to the bill.
If you wish further details on this estimate, we will be
pleased to provide them.
Sincerely,
June E. O'Neill, Director.
congressional budget office cost estimate
1. Bill number: H.R. 1743.
2. Bill title: A bill to amend the Water Resources Research
Act of 1984 to extend the authorizations of appropriations
through fiscal year 2000, and for other purposes.
3. Bill status: As ordered reported by the Senate Committee
on Environment and Public Works on March 28, 1996.
4. Bill purpose: The bill would authorize the Secretary of
the Interior to provide grants to water resources research and
technology institutes located in the States and U.S.
territories for:
general research in the amount of $5 million in
fiscal year 1996, $7 million in each of fiscal years
1997 and 1998, and $9 million in each of fiscal ycars
1999 and 2000; and
research focused on water problems of an interstate
nature in the amount of $3 million in each of fiscal
years 1996, 1997, 1998, 1999, and 2000.
5. Estimated cost to the Federal Government: CBO estimates
that the Federal Government would spend an additional $47
million to implement this bill over the 1996-2000 period. This
estimate assumes appropriation of the authorized amounts and
spending at rates consistent with historical experience.
----------------------------------------------------------------------------------------------------------------
1996 1997 1998 1999 2000
----------------------------------------------------------------------------------------------------------------
Spending Under Current Law:
Budget Authority \1\................................. 5 0 0 0 0
Estimated Outlays.................................... 5 0 0 0 0
Proposed Changes:
Authorization Level.................................. 3 10 10 12 12
Estimated Outlays.................................... 0 13 10 12 12
Spending Under H.R. 1743:
Authorization Level \1\.............................. 8 10 10 12 12
Estimated Outlays.................................... 5 13 10 12 12
----------------------------------------------------------------------------------------------------------------
\1\ The 1996 level includes amounts already appropriated for that year.
The costs of this bill fall within budget function 300.
6. Pay-as-you-go considerations: None.
7. Estimated impact on State, local, and tribal
governments: The bill contains no intergovernmental mandates as
defined by Public Law 104-4, and would impose no new direct
costs on State, local, or tribal governments. The bill would
extend the authorization of appropriations for grants to water
resources research institutes, which are located at
universities or colleges in each of the 50 State, the trust
territories, and the District of Columbia. Most of the research
institutes are located at public, land-grant universities.
The bill would authorize appropriations of $37 million for
fiscal years 1996 through 2000 for general research ($5 million
has already been provided for this purpose in fiscal year
1996). In order to receive funding, the research institutes
would have to match each dollar of grant money with at least
two dollars from non-Federal sources. The bill would also
authorize appropriations of $15 million for fiscal years 1996
through 2000 for research on interstate water problems. The
institutes would have to match this grant money dollar-for-
dollar with funds from other sources.
8. Estimated impact on the private sector: The bill would
impose no new private sector mandates, as defined in Public Law
104-4.
9. Previous CBO estimate: On August 22, 1995, CBO provided
an estimate for H.R. 1743, a bill to amend the Water Resources
Research Act of 1984 to extend the authorization of
appropriations through fiscal year 2000, and for other
purposes, as ordered reported by the House Committee on
Resources on August 2, 1995. CBO estimated that the Federal
Government would spend $37 million to implement that bill over
the 1996-2000 period. The difference in the estimates reflects
different authorization levels in the two bills and the fact
that appropriations have now been provided for 1996.
10. Estimate prepared by: Federal cost estimate--Gary
Brown; State and local government impact--Pepper Santalucia;
Private sector impact--Amy Downs.
11. Estimate approved by: Paul Sunshine for Paul N. Van de
Water, Assistant Director of Budget Analysis.
Changes in Existing Law
In compliance with section 12 of rule XXVI of the Standing
Rules of the Senate, changes in existing law made by the bill
as reported are shown as follows: existing law as proposed to
be omitted is printed inside of bold brackets; new matter
proposed to be added to existing law is printed in italic; and
existing law in which no change is proposed is shown in roman.
UNITED STATES CODE
TITLE 42--THE PUBLIC HEALTH AND WELFARE
CHAPTER 109--WATER RESOURCES RESEARCH
WATER RESOURCES RESEARCH ACT OF 1984
* * * * * * *
Sec. 10301. The Congress finds and declares that--
(1) * * *
(2) the management of water resources is closely
related to maintaining environmental quality,
productivity of natural resources and agricultural
systems, and social well-being;
* * * * * * *
(6) it is necessary to provide for the research and
development of technology for the conversion of saline
and other impaired waters to a quality suitable for
municipal, industrial, agricultural, recreational, and
other beneficial uses; [and]
(7) the Nation must provide programs to strengthen
research and associated graduate education because the
pool of scientists, engineers, and technicians trained
in fields related to water resources constitutes an
invaluable natural resource which should be increased,
fully utilized, and regularly replenished[.];
(8) long-term planning and policy development are
essential to assuring the availability of an abundant
supply of high quality for domestic and other uses; and
(9) the States must have the research and problem-
solving capacity necessary to effectively manage their
water resources.
Sec. 10302. It is the purpose of this Act to assist the
Nation and the States in augmenting their water resources
science and technology as a way to--
(1) * * *
* * * * * * *
(5) to promote more effective coordination of the
Nation's water resources research program; [and]
(6) promote the development of a cadre of trained
research scientists, engineers, and technicians for
future water resources problems[.]; and
(7) encourage long-term planning and research to meet
future water management, quality, and supply
challenges.
Sec. 10303. (a) * * *
* * * * * * *
(c) From the sums appropriated pursuant to subsection (f)
of this section, the Secretary shall make grants to each
institute to be matched on a basis of no less than [one non-
Federal dollar for every Federal dollar during the fiscal years
ending September 30, 1985, and September 30, 1986, one and one-
half non-Federal dollars for each Federal dollar during the
fiscal years ending September 30, 1987, and September 30, 1988,
and two non-Federal dollars for each Federal dollar during the
fiscal year ending September 30, 1989 and thereafter] two non-
Federal dollars for every Federal dollar, such sums to be used
only for the reimbursement of the direct cost expenditures
incurred for the conduct of the water resources research
program.
* * * * * * *
(f)(1) For the purpose of carrying out this section, there
is authorized to be appropriated to the Secretary the sum [of
$10,000,000 for each of the fiscal years ending September 30,
1989, through September 30, 1995] of $5,000,000 for fiscal year
1996, $7,000,000 for fiscal years 1997 and 1998, and $9,000,000
for fiscal years 1999 and 2000, such sums to remain available
until expended.
(g) Additional appropriations where research focused on
water problems of interstate nature: (1) There is further
authorized to be appropriated to the Secretary of the Interior
the sum [of $5,000,000 for each of the fiscal years 1991, 1992,
1993, 1994, and 1995] of $3,000,000 for each of fiscal years
1996 through 2000 only for reimbursement of the direct cost
expenses of additional research or synthesis of the results of
research by institutes which focuses on water problems and
issues of a regional or interstate nature beyond those of
concern only to be a single State and which relate to specific
program priorities identified jointly by the Secretary and the
institutes. Such funds when appropriated shall be matched on a
not less than dollar-for-dollar basis by funds made available
to institutes or groups of institutes, by States or other non-
Federal sources. Funds made available under this subsection
shall remain available until expended.
* * * * * * *
(h)(1) To carry out provisions of this Act, the Secretary--
(A) shall encourage other Federal departments,
agencies (including agencies within the Department of
the Interior), and instrumentalities to use and take
advantage of the expertise and capabilities which are
available through the institutes established by this
section on a cooperative or other basis;
(B) shall encourage cooperation and coordination with
their Federal programs concerned with water resources
problems and issues;
(C) may enter into contracts, cooperative agreements,
and other transactions without regard to section 3709
of the Revised Statutes (41 U.S.C. 5);
(D) may accept funds from other Federal departments,
agencies (including agencies within the Department of
the Interior), and instrumentalities to pay for and add
to grants made, and contracts entered into, by the
Secretary;
(E) may promulgate such rules and regulations as he
deems appropriate; and
(F) may support a program of internships for
qualified individuals at the undergraduate and graduate
level to carry out the educational and training
objectives of this Act.
(2) The Secretary shall report to Congress annually on
coordination effects with other Federal departments, agencies,
and instrumentalities under paragraph (1).
(3) Nothing in this Act shall preempt the rights and
authorities of any State with respect to its water resources or
management of those resources.
* * * * * * *