[Senate Report 113-114]
[From the U.S. Government Publishing Office]
113th Congress Report
SENATE
1st Session 113-114
_______________________________________________________________________
Calendar No. 222
DROUGHT INFORMATION ACT OF 2013
__________
R E P O R T
OF THE
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 376
October 28, 2013.--Ordered to be printed
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred thirteenth congress
first session
JOHN D. ROCKEFELLER IV, West Virginia, Chairman
BARBARA BOXER, California JOHN THUNE, South Dakota
BILL NELSON, Florida ROGER F. WICKER, Mississippi
MARIA CANTWELL, Washington ROY BLUNT, Missouri
MARK PRYOR, Arkansas MARCO RUBIO, Florida
CLAIRE McCASKILL, Missouri KELLY AYOTTE, New Hampshire
AMY KLOBUCHAR, Minnesota DEAN HELLER, Nevada
MARK WARNER, Virginia DAN COATS, Indiana
MARK BEGICH, Alaska TIM SCOTT, South Carolina
RICHARD BLUMENTHAL, Connecticut TED CRUZ, Texas
BRIAN SCHATZ, Hawaii DEB FISCHER, Nebraska
MARTIN HEINRICH, New Mexico RON JOHNSON, Wisconsin
ED MARKEY, Massachusetts JEFF CHIESA, New Jersey
Ellen Doneski, Staff Director
James Reid,\1\ Deputy Staff Director
John Williams, General Counsel
David Schwietert, Republican Staff Director
Nick Rossi, Republican Deputy Staff Director
Rebecca Seidel, Republican General Counsel
\1\James Reid served as Deputy Staff Director through October 2013.
Calendar No. 222
113th Congress Report
SENATE
1st Session 113-114
======================================================================
DROUGHT INFORMATION ACT OF 2013
_______
October 28, 2013.--Ordered to be printed
_______
Mr. Rockefeller, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 376]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 376) to reauthorize the
National Integrated Drought Information System, and for other
purposes, having considered the same, reports favorably thereon
with an amendment (in the nature of a substitute) and
recommends that the bill (as amended) do pass.
Purpose of the Bill
The purpose of S. 376 is to reauthorize the National
Integrated Drought Information System (NIDIS) and make a number
of improvements, clarifications, and refinements to the
program's statutory requirements and authorities.
Background and Needs
Drought is a natural phenomenon characterized by below
average precipitation and water supply deficiency. Periods of
persistent drought can have significant environmental,
economic, and social consequences. Unlike other natural
disasters, however, droughts can be much more difficult to
identify, as they are a creeping phenomenon, developing slowly
over large areas and an extended period of time. This slow
nature of drought can hinder the recognition of the true
impacts, potentially diminishing the urgency that would
otherwise trigger a timely and comprehensive response.
Extremely dry conditions can lead 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 stream
health. In addition, fires cost hundreds of millions of dollars
to fight and put thousands of lives at risk. Droughts have
caused shortages of grain and other agricultural products,
resulting in soaring prices for consumers, deteriorating soil
conditions, and devastated farming and ranching communities.
Further, droughts have threatened municipal water supplies and
have caused many communities to develop new water management
plans, which institute water restrictions and other water
conservation measures. According to the National Oceanic and
Atmospheric Administration (NOAA), droughts incur annual losses
of nearly $9 billion in the United States. Damages from the
2012 drought were estimated at $30 billion to $35 billion,
mostly attributed to crop losses.
Over the last decade, the United States has experienced
several severe and long-term droughts. Recent severe drought
conditions across the Nation and, in particular, in western and
central States have created life-threatening situations, as
well as financial burdens for both the Government and
individuals. In particular, the Great North American Drought,
as it is known, which began in late 2011 and is arguably
ongoing, has had catastrophic economic ramifications for much
of the continental United States. At its peak in July 2012,
approximately 81 percent of the contiguous United States faced
at least abnormally dry conditions. Estimates indicate that
crop devastation and other impacts from this drought have
reduced total U.S. gross domestic product by at least a half
percent to 1 percent, equating to a loss of between $75 billion
and $150 billion. It has exceeded, by most metrics, the impacts
of the most recent comparable drought during 1988 and 1989, and
is likely to be the most costly natural disaster in U.S.
history.
The United States can reduce its vulnerability and,
therefore, lessen the risks associated with drought episodes
through mitigation and preparedness. According to a recent
study, every dollar spent on disaster mitigation by the Federal
Emergency Management Agency ultimately results in four dollars
in future benefits to the Nation. Planning ahead to mitigate
drought therefore provides an opportunity to make cost-
effective decisions to address the highest priority problems.
Drought preparedness plans contain three critical components:
(1) a comprehensive early warning system;
(2) risk and impact assessment procedures; and
(3) mitigation and response strategies.
These components complement one another and represent an
integrated institutional approach that addresses both short-
and long-term management and mitigation issues.
To better address drought mitigation planning
comprehensively, Congress enacted the National Drought Policy
Act of 1998 (112 Stat. 641), which established the National
Drought Policy Commission (Commission). The Commission's May
2000 report to Congress recommends moving the country toward a
more proactive approach to drought preparedness and response.
The Commission recognized the need for a dynamic and accessible
drought information system that provides users with the ability
to determine the potential impacts of drought and the
associated risks they bring, as well as the decision support
tools needed to better prepare for and mitigate the effects of
drought.
In June 2004, the Western Governors' Association (WGA) issued
a report recommending the establishment of such a drought
information system, led by NOAA, to be implemented regionally,
and which would build upon existing tools such as the U.S.
Drought Monitor and the U.S. Seasonal Drought Outlook. The
National Integrated Drought Information System, or NIDIS, would
result in fuller integration of relevant and available data.
This would provide a drought ``early warning system'' capable
of providing accurate, timely, and integrated information on
drought conditions at the relevant spatial scale. Specifically,
the WGA recommended that NIDIS should pursue activities to
facilitate proactive decisions that can minimize the economic,
social, and ecosystem losses associated with drought, such as:
(1) developing integration tools to bring together
real-time data from a variety of existing networks,
including NOAA's National Mesonet;
(2) identifying historical data and indices, and
developing tools to fill data and forecasting needs
with the National Drought Mitigation Center as the
principal clearinghouse;
(3) establishing a methodology to accurately and
comprehensively quantify drought impacts;
(4) establishing an integrated Federal drought
research program;
(5) facilitating drought planning and preparedness;
and
(6) providing a framework for interaction and
education with water users, resource managers, and the
public.
In 2006, Congress enacted the National Integrated Drought
Information System Act (15 U.S.C. 313d), which established
NIDIS largely along the lines articulated by the Commission and
the WGA. Following enactment, NOAA stood up an implementation
team for NIDIS that conducted workshops and meetings with
Federal, State, and local agencies, academic researchers, and
other stakeholders for the creation of a NIDIS program
implementation plan. Submitted to Congress in July 2007, the
plan outlined how best to implement an integrated drought
monitoring and forecasting system at Federal, State, and local
levels; foster and support a research environment focusing on
risk assessment, forecasting, and management; create an early
warning system for drought to provide accurate, timely, and
integrated information; develop interactive systems, such as
the online U.S. Drought Portal, as part of the early warning
system; and provide a framework for public awareness and
education about droughts.
Since the program became operational, NIDIS has provided data
that helps decision makers assess the risk of having too little
water and prepare for and mitigate the effects of drought.
NIDIS is continually developing more robust services and
regional decision support resources and integrating basic and
applied research performed by NOAA and other agencies into an
adaptive decision-support environment for resource managers,
farmers, and other water users. Utilizing infrastructure and
data available through Federal, State, and tribal partners,
NIDIS provides public access to the experience and expertise of
NOAA's Regional Climate Centers and Regional Integrated
Sciences and Assessments teams, the Department of Interior, the
Department of Agriculture, the National Drought Mitigation
Center, and other research groups. NIDIS has also been
developing monitoring and forecasting systems as well as
education efforts to tailor drought early warning systems for
specific watersheds, coastal zones, and geographic regions.
Though the program's work is ongoing and continues to support
decision makers, authorization for appropriations for NIDIS
expired at the end of 2012.
Summary of Provisions
S. 376 would amend the National Integrated Drought
Information System Act of 2006 to specify that:
(1) the Under Secretary of Commerce for Oceans and
Atmosphere would continue to support the NIDIS program,
and
(2) the program's purpose shall be to better inform
and provide for more timely decision-making to reduce
drought related impacts and costs.
The bill would also revise NIDIS functions to require that
the program:
(1) provide certain information, forecasts, and
assessments described in the Act on both national and
regional levels;
(2) build upon existing forecasting and assessment
programs and partnerships of Federal, State, regional,
private, public, and academic entities; and
(3) continue ongoing research activities related to
drought and the role of extreme weather events and
climate variability in drought.
Additionally, the bill would require the Under Secretary to
provide a report to Congress concerning the NIDIS program that
includes a list of partners with whom the Under Secretary
collaborates on NIDIS implementation and a description of NIDIS
outreach activities. Finally, S. 376 would authorize
appropriations for fiscal years 2014 through 2018.
Legislative History
The Drought Information Act of 2013 was introduced by Senator
Pryor on February 25, 2013, and is cosponsored by Senators
Moran, Thune, Udall of New Mexico, and Udall of Colorado.
Senator Pryor sponsored similar legislation, S. 3594, the
Drought Information Act of 2012, during the 112th Congress,
which was also referred to the Committee on Commerce, Science
and Transportation.
On July 30, 2013, the Committee met in open Executive Session
and, by voice vote, ordered S. 376 reported favorably with an
amendment in the nature of a substitute.
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. 376--Drought Information Act of 2013
Summary: S. 376 would amend the National Integrated Drought
Information System Act of 2006. The bill would authorize the
appropriation of $14.5 million annually over the 2014-2018
period for the National Oceanic and Atmospheric Administration
(NOAA) to maintain a system to provide early warnings of
droughts by collecting and disseminating information and
coordinating research on drought conditions. In 2013, the
agency received $12 million to carry out similar activities.
Assuming appropriation of the authorized amounts, CBO
estimates that implementing the legislation would cost $65
million over the 2014-2018 period and $8 million after 2018.
Enacting S. 376 would not affect direct spending or revenues;
therefore, pay-as-you-go procedures do not apply.
S. 376 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA).
Estimated cost to the federal government: The estimated
budgetary impact of S. 376 is shown in the following table. The
costs of this legislation fall within budget function 300
(natural resources and environment).
----------------------------------------------------------------------------------------------------------------
By fiscal year, in millions of dollars--
--------------------------------------------------
2014 2015 2016 2017 2018 2014-2018
----------------------------------------------------------------------------------------------------------------
CHANGES IN SPENDING SUBJECT TO APPROPRIATION
Authoziation Level........................................... 15 15 15 15 15 73
Estimated Outlays............................................ 9 12 14 15 15 65
----------------------------------------------------------------------------------------------------------------
Note: Amounts may not sum to totals because of rounding.
Basis of estimate: For this estimate, CBO assumes that the
legislation will be enacted near the end of fiscal year 2013
and that the authorized amounts will be appropriated for each
fiscal year. Estimated outlays are based on historical spending
patterns for this program.
Pay-As-You-Go considerations: None.
Intergovernmental and private-sector impact: S. 376
contains no intergovernmental or private-sector mandates as
defined in UMRA.
Estimate prepared by: Federal Costs: Jeff LaFave, Impact on
State, Local, and Tribal Governments: Melissa Merrell, Impact
on the Private Sector: Amy Petz.
Estimate approved by: Theresa Gullo, Deputy 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
S. 376 would modify certain statutory requirements and
authorities of the NIDIS program. The bill encourages NIDIS to
build upon existing forecasting and assessment partnerships
within the Federal, State, regional, private, public, and
academic sectors, and requires the listing of such partners in
a report to Congress. To the extent NIDIS staff members are
currently affected by existing law, the bill does not impose
any burdens on any additional persons.
ECONOMIC IMPACT
S. 376 is not expected to have an adverse impact on the
Nation's economy. The bill would reauthorize the NIDIS program,
the purpose of which is to better inform and provide for
timelier decision-making to reduce drought-related impacts and
costs. Because droughts have costly impacts to both public and
private entities, this bill may have a positive net economic
impact, especially on those sectors of the U.S. economy most
vulnerable to drought impacts. S. 376 would authorize $14.5
million to be appropriated for the NIDIS program for fiscal
years 2014 through 2018. These funding levels are not expected
to have an inflationary impact on the Nation's economy.
PRIVACY
The reported bill would not have any adverse impact on the
personal privacy of individuals.
PAPERWORK
The Committee does not anticipate a major increase in
paperwork resulting from the passage of this legislation. The
bill would require the Under Secretary of Commerce for Oceans
and Atmosphere to submit a report to Congress on the NIDIS
program within a year and a half of enactment of this Act.
Congressionally Directed Spending
In compliance with paragraph 4(b) of rule XLIV of the
Standing Rules of the Senate, the Committee provides that no
provisions contained in the bill, as reported, meet the
definition of congressionally directed spending items under the
rule.
Section-by-Section Analysis
Section 1. Short Title.
This section would provide that the Act be cited as the
Drought Information Act of 2013.
Section 2. Reauthorization of National Integrated Drought Information
System.
Sec. 2(a). System Amendments.
This subsection would amend the National Integrated Drought
Information System Act of 2006 (15 U.S.C. 313d) to update the
purposes and functions of NIDIS. This subsection would require
NIDIS to build upon existing Federal, State, regional, private,
public, and academic forecasting and assessment programs and
partnerships to support ongoing monitoring and dissemination of
weather and climate information.
Sec. 2(b). Authorization of Appropriations.
This subsection would authorize $14.5 million to be
appropriated for each of the fiscal years 2014 through 2018 for
NIDIS.
Sec. 2(c). Report.
This subsection would require that within a year and a half
of the enactment of this Act the Under Secretary of Commerce
for Oceans and Atmosphere submit a report to the Committee on
Commerce, Science, and Transportation of the Senate and the
Committee on Science, Space, and Technology of the House of
Representatives regarding NIDIS. The report would be required
to include an assessment of the implementation of NIDIS,
including how the information, forecasts, and assessments
produced are utilized in drought policy planning and response
activities; specific plans for continued development of the
system, including future milestones; identification of
research, monitoring, and forecasting needs to enhance the
predictive capability of drought early warnings, the length and
severity of droughts, and the contribution of weather events to
reducing the severity or ending drought conditions; a list of
partners with whom the Under Secretary collaborates to
implement NIDIS; and a description of the outreach activities
conducted by the Under Secretary regarding NIDIS. This
subsection would require the Under Secretary to consult with
relevant Federal, regional, State, tribal, and local government
agencies, research institutions, and the private sector in the
development of this report.
Changes in Existing Law
In compliance with paragraph 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 proposed to be
omitted is enclosed in black brackets, new material is printed
in italic, existing law in which no change is proposed is shown
in roman):
NATIONAL INTEGRATED DROUGHT INFORMATION SYSTEM ACT OF 2006
[15 U.S.C. 313d]
SEC. 3. NIDIS PROGRAM.
(a) In General.--The Under Secretary, through the National
Weather Service and other appropriate weather and climate
programs in the National Oceanic and Atmospheric
Administration, shall establish and continue to support a
National Integrated Drought Information System to better inform
and provide for more timely decisionmaking to reduce drought
related impacts and costs.
[(b) System Functions.--The National Integrated Drought
Information 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
engender better informed and more
timely decisions thereby leading to
reduced 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;
[(2) coordinate, and integrate as practicable,
Federal research in support of a drought early warning
system; and
[(3) build upon existing forecasting and assessment
programs and partnerships.]
(b) System Functions.--The National Integrated Drought
Information System shall--
(1) provide an effective drought early warning system
that--
(A) collects and integrates information on
the key indicators of drought and drought
impacts, including water supplies and soil
moisture, in order to make usable, reliable,
and timely forecasts of drought, including
assessments of the severity of drought
conditions and impacts; and
(B) provides such information, forecasts, and
assessments on both national and regional
levels;
(2) communicate drought forecasts, drought
conditions, and drought impacts on an ongoing basis to
stakeholders and entities engaged in drought planning,
preparedness, and management, including--
(A) decisionmakers at the Federal, regional,
State, tribal, and local levels of government;
(B) the private sector; and
(C) the public;
(3) provide timely data, information, and products
that reflect local, regional, and State differences in
drought conditions;
(4) coordinate, and integrate as practicable, Federal
research and monitoring in support of a drought early
warning system;
(5) build upon existing Federal, State, regional,
private, public, and academic forecasting and
assessment programs and partnerships; and
(6) continue ongoing research and monitoring
activities related to drought, including research
activities relating to length, severity, and impacts of
drought and the role of extreme weather events and
climate variability in drought.
(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.
SEC. 4. AUTHORIZATION OF APPROPRIATIONS.
[15 U.S.C. 313d note]
There are authorized to be appropriated to carry out this
Act--
(1) $11,000,000 for fiscal year 2007;
(2) $12,000,000 for fiscal year 2008;
(3) $13,000,000 for fiscal year 2009;
(4) $14,000,000 for fiscal year 2010;
(5) $15,000,000 for fiscal year 2011; [and]
(6) $16,000,000 for fiscal year 2012[.]; and
(7) $14,500,000 for each of fiscal years 2014 through
2018.