[Senate Report 109-57]
[From the U.S. Government Publishing Office]
109th Congress Report
SENATE
1st Session 109-57
_______________________________________________________________________
Calendar No. 71
NATIONAL OCEAN EXPLORATION PROGRAM ACT
__________
R E P O R T
OF THE
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. H.R. deg. 39
DATE deg.April 13, 2005.--Ordered to be printed
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SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred ninth congress
first session
TED STEVENS, Alaska, Chairman
DANIEL K. INOUYE, Hawaii, Co-Chairman
JOHN McCAIN, Arizona JOHN D. ROCKEFELLER IV, West
CONRAD BURNS, Montana Virginia
TRENT LOTT, Mississippi JOHN F. KERRY, Massachusetts
KAY BAILEY HUTCHISON, Texas BYRON L. DORGAN, North Dakota
OLYMPIA J. SNOWE, Maine BARBARA BOXER, California
GORDON H. SMITH, Oregon BILL NELSON, Florida
JOHN ENSIGN, Nevada MARIA CANTWELL, Washington
GEORGE ALLEN, Virginia FRANK LAUTENBERG, New Jersey
JOHN E. SUNUNU, New Hampshire E. BENJAMIN NELSON, Nebraska
JIM DeMINT, South Carolina MARK PRYOR, Arkansas
DAVID VITTER, Louisiana
Lisa Sutherland, Staff Director
Christine Drager Kurth, Deputy Staff Director
David Russell, Chief Counsel
Margaret Cummisky, Democratic Staff Director and Chief Counsel
Samuel Whitehorn, Democratic Deputy Staff Director and General Counsel
Calendar No. 71
109th Congress Report
SENATE
1st Session 109-57
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NATIONAL OCEAN EXPLORATION PROGRAM ACT
_______
April 13, 2005.--Ordered to be printed
_______
Mr. Stevens, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 39]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill joint resolution deg. (S.
H.R. deg. 39) to establish a coordinated national
ocean exploration program within the National Oceanic and
Atmospheric Administration, having considered the same, reports
favorably thereon without amendment with
amendments deg. with an amendment (in the nature of a
substitute) deg. and recommends that the bill joint
resolution (as amended) deg. do pass.
PURPOSE OF THE BILL
The purpose of S. 39, the National Ocean Exploration Program
Act, is to establish a national ocean exploration program
within NOAA and authorize appropriations for the program for
fiscal years 2006 through 2017. The program's main purpose
would be to ``benefit, inform, and inspire'' the American
people, while facilitating the discovery of new living and non-
living resources, documenting shipwrecks and submerged
archeological sites, and encouraging the growth of new
technologies. The bill would also establish an interagency task
force to coordinate Federal and non-government cooperation.
BACKGROUND AND NEEDS
Ocean exploration has encompassed charting ocean depth and
bathymetry, and identifying and studying marine organisms.
Although ocean exploration has occurred since the 1800s, and
advances in deep-sea technologies have made it easier to
identify structures at ocean depths, only 5 percent of the
ocean floor has been explored to date and scientific
understanding of undersea environments remains cursory. Current
ocean exploration excursions continue to probe uncharted
territory and locate and identify new species and resources,
ranging from hydrothermal vents and deep sea corals to
shipwrecks and other cultural artifacts. The potential for
identifying new and profitable energy sources and biomedical
resources in the oceans is significant, but it remains largely
untapped. Progress has generally been limited due to the narrow
focus and limited financial and other support for oceans
exploration in the Federal government.
For decades, the ocean science, research, and education
communities have called for strengthening Federal ocean
exploration programs and priorities in order to fill critical
scientific knowledge gaps, develop potential economic
resources, and inspire greater ocean literacy in the general
public. The final report to Congress by the U.S. Commission on
Ocean Policy (the Ocean Commission), released on September 20,
2004, reiterated these needs. The Ocean Commission report
highlighted the need for a strong, comprehensive ocean
exploration program, citing the persistent call for a national
program from various commissions since the 1970s.
For example, the Ocean Commission notes that in the 1980s and
1990s, NOAA and the U.S. Geological Survey (USGS) conducted a
long-term exploration of the U.S. Exclusive Economic Zone in
response to recommendations of the National Advisory Committee
on Oceans and Atmosphere. This effort produced basic
reconnaissance survey data, although NOAA and the USGS did not
conduct more detailed explorations due to divergent agency
missions and limited funding.
In June 2000, President Clinton charged the Secretary of
Commerce with recommending a national strategy for launching a
new era of ocean exploration. To develop this strategy, the
Secretary, through NOAA, established the President's Panel on
Ocean Exploration, which consisted of leading ocean explorers,
scientists, and educators. This panel recommended a
multidisciplinary, integrated national ocean exploration office
with an annual budget of $75 million. In response, NOAA
established the Office of Ocean Exploration. Funding for this
office started at $4 million in FY2001. In FY2004 it increased
to $12 million, and in FY2005 Congress further increased its
funding to $22 million, based on the Commission's
recommendations.
Overall, the Ocean Commission considers the Federal
government's past efforts on ocean exploration as inadequately
funded and not comprehensive enough in scope. Under
Recommendation 25-4, the Ocean Commission calls for
``significant funding'' for ``an expanded national ocean
exploration program,'' with NOAA and the National Science
Foundation serving as the lead agencies, and the USGS and the
U.S. Navy's Office of Naval Research serving supporting roles.
The recommendation also states outreach and education should be
an integral component of the program. The report recommends an
additional $30 million in the first year of implementation,
rising to $110 million in annual ongoing costs, including
infrastructure costs. Chapter 27 of the Commission's report
sets forth detailed recommendations for infrastructure needs of
the program, including dedicated ocean exploration platforms,
including ships and submersibles.
LEGISLATIVE HISTORY
S. 39 was introduced in the Senate on January 25, 2005, by
Senator Stevens and referred to the Senate Committee on
Commerce, Science, and Transportation. It is cosponsored by
Senators Inouye, Snowe, Cantwell, Lautenberg, Kerry, and Dodd.
On March 10, 2005, the bill was considered by the Committee in
an open Executive Session. The Committee, without objection or
amendment, ordered S. 39 be reported.
ESTIMATED COSTS
In accordance with paragraph 11(a) of rule XXVI of the
Standing Rules of the Senate and section 403 of the
Congressional Budget Act of 1974, the Committee provides the
following cost estimate prepared by the Congressional Budget
Office:
S. 39--National Oceanic and Atmospheric Administration
Summary: S. 39 would direct the National Oceanic and
Atmospheric Administration (NOAA) to establish and coordinate a
national program for ocean exploration. The purposes of the
program would be to explore the physical, biological,
geological, archaeological, and other characteristics of the
world's oceans. In carrying out this program, NOAA would be
authorized to coordinate scientific voyages with other federal
agencies or institutions and to conduct public education and
outreach programs. The bill also would direct NOAA to convene,
with other federal agencies such as the National Aeronautics
and Space Administration and the Office of Naval Research, a
task force to provide the new program with available
exploration technology, communications infrastructure, and data
management systems. For those activities, the bill would
authorize the appropriation of $45 million annually for fiscal
years 2006 through 2011 and $55 million annually for fiscal
years 2012 through 2017.
Assuming appropriation of the authorized amounts, CBO
estimates that implementing S. 39 would cost about $15 million
in fiscal year 2006 and $180 million over the 2006-2010 period.
We estimate that $420 million would be spent after 2010,
including $375 million authorized to be appropriated between
2011 and 2017. Enacting S. 39 would have no impact on revenues
or direct spending.
S. 39 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA)
and would impose no costs on state, local, or tribal
governments.
Estimated cost to the Federal Government: The estimated
budgetary impact of S. 39 is shown in the following table. For
this estimate, CBO assumes that the entire amounts authorized
by the bill will be appropriated for each fiscal year. Outlays
have been estimated on the basis of historical patterns for
other NOAA programs. The costs of this legislation fall within
budget function 300 (natural resources and environment).
----------------------------------------------------------------------------------------------------------------
By fiscal year, in millions of dollars--
--------------------------------------------
2006 2007 2008 2009 2010
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CHANGES IN SPENDING SUBJECT TO APPROPRIATION \1\
Authorization Level................................................ 45 45 45 45 45
Estimated Outlays.................................................. 15 30 45 45 45
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\1\ NOAA's National Oceans Office received appropriations of nearly $830 million for oceanic research and
science activities in 2005, including some activities that are similar to the exploration program and ocean
research efforts that would be authorized by this bill.
Intergovernmental and private-sector impact: S. 39 contains
no intergovernmental or private-sector mandates as defined in
UMRA and would impose no costs on state, local, or tribal
governments. State and local governments, including academic
institutions, that participate in research, development, and
education activities created by the bill would incur costs
voluntarily.
Estimate prepared by: Federal Costs: Deborah Reis; Impact
on State, Local, and Tribal Governments: Gregory Waring; Impact
on the Private Sector: Selena Caldera.
Estimate approved by: Robert A. Sunshine, Assistant
Director for Budget Analysis.
REGULATORY IMPACT STATEMENT
In accordance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee provides the
following evaluation of the regulatory impact of the
legislation as reported:
NUMBER OF PERSONS COVERED
The reported bill would establish a national ocean
exploration program within NOAA and authorize appropriations
for the program for fiscal years 2006 through 2017. It does not
authorize any new regulations and therefore will not subject
any individuals or businesses to new regulations.
ECONOMIC IMPACT
Section 7 would authorize $45,000,000 for each of fiscal
years 2006 through 2011, and $55,000,000 for each of fiscal
years 2012 through 2017 in appropriations to the Secretary of
Commerce for this program. These funding levels are not
expected to have an inflationary impact on the nation's
economy.
PRIVACY
The reported bill will not have any adverse impact on the
personal privacy of individuals.
PAPERWORK
The reported bill will not increase paperwork requirements
for the private sector. Those non-governmental partners that
are interested in participating on the Exploration Technology
and Infrastructure Task Force established in section 5 would
likely increase their communications, data management, and
technical expertise capacity related to oceans exploration.
SECTION-BY-SECTION ANALYSIS
Section 1. Short title
Section 1 cites this Act as the ``National Ocean Exploration
Program Act.''
Section 2. Establishment
Section 2 would establish a coordinated national ocean
exploration program within NOAA, which would work in
consultation with the National Science Foundation.
Section 3. Purposes
Section 3 states that the main purpose of the program would
be to benefit, inform, and inspire the American people about
the oceans. The program would improve the nation's
understanding, appreciation, and stewardship of oceans and
submerged archaeology. The program's endeavors would be
interdisciplinary and designed to facilitate the discovery of
new marine natural products that may have social or health
benefits.
Section 4. Authorities
Section 4 would authorize NOAA, with interested parties, to
conduct interdisciplinary activities to explore and document
little known marine resources, with an emphasis on deep ocean
regions (e.g., seamounts) and submerged archaeological sites.
The program would engage and educate the public by utilizing a
transparent review process for proposed activities, promoting
improved technology, and establishing a forum for communication
to enhance the scientific and technical expertise of the
program. It also authorizes the program to accept donations
that could be used for exploration.
Section 5. Exploration technology and infrastructure task force
Section 5 would establish a task force consisting of the
National Aeronautics and Space Administration, U.S. Geological
Survey, U.S. Navy, and other interested agencies and partners.
The task force would enhance the program's use of new
technology and improve its communications, data management, and
technical expertise capacity through partnerships between
government and other entities.
Section 6. Interagency financing
Section 6 authorizes the transfer of funds between Federal
agencies, provided those funds are specifically appropriated
for this program.
Section 7. Authorization of appropriations
Section 7 would authorize appropriations to NOAA for this
program of $45,000,000 for each of fiscal years 2006 through
2011, and $55,000,000 for each of fiscal years 2012 through
2017.
CHANGES IN EXISTING LAW
In compliance with paragraph 12 of rule XXVI of the Standing
Rules of the Senate, the Committee states that the bill as
reported would make no change to existing law.