[Senate Report 116-165]
[From the U.S. Government Publishing Office]
Calendar No. 315
116th Congress } { Report
SENATE
1st Session } { 116-165
_______________________________________________________________________
NATIONAL LANDSLIDE PREPAREDNESS ACT
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 529
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
December 5, 2019.--Ordered to be printed
__________
U.S. GOVERNMENT PUBLISHING OFFICE
99-010 WASHINGTON : 2019
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred sixteenth congress
first session
ROGER F. WICKER, Mississippi, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROY BLUNT, Missouri AMY KLOBUCHAR, Minnesota
TED CRUZ, Texas RICHARD BLUMENTHAL, Connecticut
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska TOM UDALL, New Mexico
CORY GARDNER, Colorado GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
SHELLEY MOORE CAPITO, West Virginia TAMMY DUCKWORTH, Illinois
MIKE LEE, Utah JON TESTER, Montana
RON JOHNSON, Wisconsin KYRSTEN SINEMA, Arizona
TODD C. YOUNG, Indiana JACKY ROSEN, Nevada
RICK SCOTT, Florida
John Keast, Staff Director
David Strickland, Minority Staff Director
Calendar No. 315
116th Congress } { Report
SENATE
1st Session } { 116-165
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NATIONAL LANDSLIDE PREPAREDNESS ACT
_______
December 5, 2019.--Ordered to be printed
_______
Mr. Wicker, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 529]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 529) to establish a national
program to identify and reduce losses from landslide hazards,
to establish a national 3D Elevation Program, 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. 529 is to authorize a national landslide
hazards reduction program within the United States Geological
Survey (USGS) to identify and understand risks and reduce
losses from landslide hazards, and to help improve
communication and emergency preparedness. The bill also
establishes a national 3-Dimensional Elevation Program (3DEP)
to update and produce standard, publicly accessible 3D
elevation data to assess landslide hazards, recognize geologic
and environmental hazards, and to identify natural resources.
Background and Needs
Landslides are geologic hazards that exist throughout the
United States. The costs of landslides are significant; the
USGS estimates that landslides account for $2 billion to $4
billion in damages\1\ and, on average, 25-50 fatalities every
year.\2\ As expansion of urban and recreational development
occurs, people are exposed to potential impacts from landslide
hazards. Landslides are often triggered by other events like
heavy storms, earthquakes, volcanic activities, and wildfires.
In March 2014, a landslide in Washington State occurred near
Oso, causing 43 deaths and the destruction of 49 homes and
structures.\3\ The direct costs of the Oso landslide totaled
more than $80 million and highlighted the need for a national
landslide hazards reduction program.
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\1\American Geosciences Institute, ``How much do landslides cost
the U.S. in terms of monetary losses?'' (https://
www.americangeosciences.org/critical-issues/faq/how-much-do-landslides-
cost-terms-monetary-losses).
\2\U.S. Geological Survey, Landslides Hazards Program (https://
www.usgs.gov/faqs/how-many-deaths-result-landslides-each-year?qt-
news_science_products=0#qt-news_science_products).
\3\U.S. Geological Survey, ``Five Years Later--The Oso (SR 530)
Landslide in Washington'' (https://www.usgs.gov/news/five-years-later-
oso-sr-530-landslide-washington?qt-news_science_
products=1#qt-news_science_products).
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Established in the 1970s, the Landslides Hazards Program
(LHP) provides scientific information to minimize loss of life
and property from landslides.\4\ The LHP conducts landslide
hazard assessments, conducts landslide investigations and
forecasts, and provides assistance in response to landslide
events. The LHP collaborates with States and other Federal
agencies in these activities. Local public decisionmakers
depend on the LHP for information before, during, and after
landslide triggering disasters to better inform their actions.
Since fiscal year 2014, the LHP has been funded at $3.5 million
annually.\5\
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\4\U.S. Geological Survey, Landslides Hazards Program (https://
www.usgs.gov/faqs/how-many-deaths-result-landslides-each-year?qt-
news_science_products=0#qt-news_science_products).
\5\U.S. Department of the Interior, Office of Budget (https://
www.doi.gov/budget/
appropriations/).
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AUTHORIZING A NATIONAL LANDSLIDE HAZARDS REDUCTION PROGRAM
S. 529 directs the Secretary of the Interior to bolster the
LHP's activities by creating a National Landslide Hazards
Reduction Program to identify and understand risks and reduce
losses from landslide hazards, protect communities at risk, and
to help improve communication and emergency preparedness. The
program would be required to map and assess landslide hazards,
identify regional and local priorities through coordination
with States, Indian Tribes, and local governments, and develop
landslide hazard guidelines for geologists, engineers,
emergency managers, and land-use and other decisionmakers.
The program would assist the efforts of State and local
governments and decisionmakers to reduce landslide risks by
providing planning and risk-reduction guidance and materials
through a publicly available national landslide hazards
database. The program also would expand early warning systems
for landslide hazards and develop emergency response procedures
for rapid deployment of Federal funds to areas affected by
landslide events.
An interagency committee, chaired by the Secretary of the
Interior, would oversee and coordinate the National Landslide
Hazards Reduction Program. The committee would support the
development and execution of a national strategy and plan for
landslide hazards and risk reduction. An advisory committee on
landslides, composed of members from States, territories,
Indian Tribes, research institutions, industry, and emergency
management, would provide advice and recommendations to the
interagency committee.
ESTABLISHING THE 3D ELEVATION PROGRAM (3DEP)
The bill also would authorize 3DEP to complement and
provide data to the National Landslide Hazard Reduction
Program. 3DEP would update and produce standard, publicly
accessible 3D elevation data for the United States, in
coordination with other Federal agencies and non-Federal
entities. The products produced by 3DEP would improve
understanding and assessments of landslide hazards, identify
energy, mineral, and water resources, and recognize geologic
and environmental hazards such as active faults and seismic
areas, unstable ground subject to landslides, swelling soils,
floodplains, and abandoned mine lands.
An interagency committee, chaired by the Secretary of the
Interior, would oversee and coordinate the activities of 3DEP.
A subcommittee of the National Geospatial Advisory Committee
would advise the interagency coordinating committee and would
assess the management and implementation of the activities
carried out in 3DEP.
Summary of Provisions
The National Landslide Preparedness Act would direct the
USGS to establish a National Landslide Hazards Reduction
Program to better understand and identify landslide hazards and
risks, protect communities and reduce losses from landslide
hazards, and improve emergency preparedness.
If enacted, the National Landslide Preparedness Act would
do the following:
Direct USGS to establish a National Landslide
Hazards Reduction Program, which requires that the
USGS:
Establish a national strategy to reduce landslide
risks;
Create and maintain publicly accessible database
on landslide hazards;
Create an early warning system for flash floods
and debris flows;
Lead an interagency coordinating committee on
landslide hazards; and
Authorize two new grant programs.
It also would do the following:
Authorize USGS to create 3DEP, which would do the
following:
Require the USGS to develop elevation data for the
United States and produce publicly accessible
elevation products;
Authorize USGS to make grants and enter into
cooperative agreements; and
Direct USGS to head interagency coordinating
committee for 3DEP.
This bill would authorize appropriations of $37 million for
each of fiscal years 2020-2023 to carry out the National
Landslide Hazards Reduction Program; of which $25 million be
made available to the USGS, $11 million be made available to
the National Science Foundation, and $1 million be made
available to the National Oceanic and Atmospheric
Administration. The bill would authorize appropriations of $20
million for each of fiscal years 2020-2023 to carry out 3DEP.
Legislative History
S. 529, the National Landslide Preparedness Act, was
introduced on February 14, 2019, by Senator Cantwell (for
herself and Senators Murkowski, Gardner, Wyden, and Feinstein),
and was referred to the Committee on Commerce, Science, and
Transportation of the Senate. Senator Sullivan is an additional
cosponsor. On April 3, 2019, the Committee met in open
Executive Session and, by voice vote, ordered S. 529 to be
reported favorably with an amendment in the nature of a
substitute.
In the 115th Congress, a similar bill, S. 698, the National
Landslide Preparedness Act, was introduced on March 22, 2017,
by Senator Cantwell (for herself and Senators Feinstein,
Murkowski and Murray) and was referred to the Committee on
Commerce, Science, and Transportation of the Senate. Senator
Wyden became an additional cosponsor. The measure was not taken
up by the Committee.
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:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
The bill would
Authorize the appropriation of $37 million
annually over the 2020-2023 period for the National
Landslide Hazards Program
Authorize the appropriation of $20 million
annually over the 2020-2023 period for the 3D Elevation
Program
Estimated budgetary effects would primarily stem from
Spending of amounts specifically authorized
to be appropriated
Bill summary: S. 529 would direct the United States
Geological Survey (USGS) to implement two programs focused on
mapping the territory of the United States. Under the bill, the
National Landslide Hazards Reduction Program (NLHRP) would
develop a national strategy to reduce landslide risks, create
and maintain a publicly accessible database on landslide
hazards, expand the current early warning system for flash
floods and debris flow following wildfires, and lead an
interagency coordinating committee on landslide hazards. The
bill also would authorize two grant programs under the NLHRP.
Under the 3D Elevation Program, USGS would be required to
develop elevation data for the United States and to produce
publicly accessible data products. In implementing the program,
the USGS would be authorized to make grants and enter into
cooperative agreements. The bill would direct the USGS to head
an interagency coordinating committee for the program.
Estimated Federal cost: The estimated budgetary effect of
S. 529 is shown in Table 1. The costs of the legislation fall
within budget function 300 (natural resources and environment).
TABLE 1.--ESTIMATED INCREASES IN SPENDING SUBJECT TO APPROPRIATION UNDER S. 529
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By fiscal year, millions of dollars--
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2019 2020 2021 2022 2023 2024 2019-2024
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National Landslide Hazards Reduction Program:
Authorization.................................... 0 37 37 37 37 0 148
Estimated Outlays................................ 0 26 35 37 37 11 146
3D Elevation Program:
Authorization.................................... 0 20 20 20 20 0 80
Estimated Outlays................................ 0 8 17 20 20 12 77
Total Changes:
Authorization................................ 0 57 57 57 57 0 228
Estimated Outlays............................ 0 34 52 57 57 23 223
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Basis of estimate: For this estimate, CBO assumes that S.
529 will be enacted during fiscal year 2019 and that the
authorized amounts will be appropriated for each fiscal year
beginning in 2020. Estimated outlays follow historical patterns
for similar programs.
S. 529 would authorize the appropriation of $57 million a
year for a total of $228 million over the 2020-2023 period.
Assuming appropriation of those amounts, CBO estimates that the
bill would cost $223 million over the 2020-2024 period and $5
million after 2024.
National Landslide Hazards Reduction Program: S. 529 would
authorize the appropriation of $37 million annually from 2020
to 2023 for the USGS to implement the NLHRP. CBO estimates that
implementing the program as authorized would cost $146 million
over the 2020-2024 period. Currently the USGS operates a
similar program that meets some of the requirements of S. 529.
In 2019, the USGS allocated about $4 million to that program.
3D Elevation Program: The bill would authorize the
appropriation of $20 million annually from 2020 to 2023 for the
USGS to implement the 3D Elevation Program. CBO estimates that
implementing the program would cost $77 million over the 2020-
2024 period. Currently the USGS operates a similar program that
meets some of the requirements outlined under S. 529. In 2019,
the USGS allocated about $38 million to that program.
Pay-As-You-Go considerations: None.
Increase in long-term deficits: None.
Mandates: None.
Estimate prepared by: Federal Costs: Robert Reese;
Mandates: Jon Sperl.
Estimate reviewed by: Kim P. Cawley, Chief, Natural and
Physical Resources Cost Estimates Unit; H. Samuel Papenfuss,
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. 529, as reported, would not subject individuals to new
regulations.
economic impact
S. 529, as reported, is not expected to have a negative
economic impact.
privacy
The reported bill would have no impact on the personal
privacy of individuals.
paperwork
The National Landslide Hazards Reduction Program would
require the Secretary, in coordination with the Committee, not
later than 1 year after the date of enactment of this Act and
every 5 years thereafter, to publish a national strategy for
landslide hazard risk reduction and response in the United
States. The bill also would require a biennial report be
submitted to Congress through calendar year 2030, which would
include a description of the goals and accomplishments of the
Committee in carrying out the national strategy, results of
activities carried out by the Committee, and implementation of
any recommendations of the Advisory Committee.
3DEP would require the subcommittee to submit a report, not
later than 1 year after the date of enactment of this Act and
every 2 years thereafter, to the Secretary and the 3D Elevation
Federal Interagency Coordinating Committee, the findings from
and recommendations based on assessments carried out in 3DEP.
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 bill may be cited as
the ``National Landslide Preparedness Act''.
Section 2. Definitions.
This section includes definitions of the terms ``3D,'' ``3D
elevation data,'' ``3D elevation program,'' ``IfSAR,'' ``Indian
tribe,'' ``lahar,'' ``LiDAR,'' ``Secretary,'' ``State office,''
and ``territory.''
Section 3. National Landslide Hazards Reduction Program.
This section would direct the Secretary of the Interior to
establish the National Landslide Hazards Reduction Program
within the USGS Natural Hazards Program. It would allow the
Secretary to coordinate with an Interagency Committee on
Landslide Hazards, USGS, and other Federal agencies to improve
landslide hazard preparedness and response, establish working
groups with State and local governments, territories, and
Indian Tribes to identify regional priorities, and develop and
implement guidelines for landslide hazards to be used by
geologists, engineers, emergency management, and other
decisionmakers. The program also would publish a national
strategy for landslide risk reduction and response and develop
and maintain a publicly accessible national hazard and risk
database. The program would strengthen community preparedness
by disseminating planning and risk materials, expanding early
warning systems, and establishing procedures for rapid
emergency response and deployment of Federal resources to
affected communities.
This section also would provide competitive grants to
State, local, and Tribal governments to research and collect
data on landslide hazards. It would require the National
Science Foundation to ensure that competitive landslide
research grants advance the goals and priorities of the
national strategy.
Section 4. Ground subsidence.
This section would allow the Secretary to support
identification, mapping, research, and monitoring of subsidence
and groundwater resource accounting.
Section 5. 3D Elevation Program.
This section would direct the Secretary to establish a 3DEP
and the 3D Elevation Federal Interagency Coordinating Committee
and would authorize appropriations for 3DEP. 3DEP would provide
standard, publicly accessible 3D elevation data coverage and
data products for the United States, as well as promote
collection, dissemination, and use of the data across Federal,
State, local, and Tribal governments, communities, institutes
of higher education, and the private sector. Finally, this
section would allow USGS to make grants and enter into
cooperative agreements to facilitate the improvement of
nationwide coverage of 3D elevation data.
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.
[all]