[Senate Report 116-234]
[From the U.S. Government Publishing Office]


                                                      Calendar No. 481
116th Congress    }                                     {       Report
                                 SENATE
 2d Session       }                                     {      116-234
_______________________________________________________________________

                                     


                           DIGITAL COAST ACT

                               __________

                              R E P O R T

                                 of the

           COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

                                   on

                                S. 1069









              [GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]








                 June 18, 2020.--Ordered to be printed 
                               __________

                      U.S. GOVERNMENT PUBLISHING OFFICE
                      
99-010                     WASHINGTON : 2020 
                 
                 
                 
                 
                 
                 
                 
                 
                 
                 
                 
                 
                 
                 
       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
                     one hundred sixteenth congress
                             second 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. 481
116th Congress    }                                     {       Report
                                 SENATE
 2d Session       }                                     {      116-234
======================================================================



 
                           DIGITAL COAST ACT

                                _______
                                

                 June 18, 2020.--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. 1069]

      [Including cost estimate of the Congressional Budget Office]

    The Committee on Commerce, Science, and Transportation, to 
which was referred the bill (S. 1069) to require the Secretary 
of Commerce, acting through the Administrator of the National 
Oceanic and Atmospheric Administration, to establish a 
constituent-driven program to provide a digital information 
platform capable of efficiently integrating coastal data with 
decision-support tools, training, and best practices and to 
support collection of priority coastal geospatial data to 
inform and improve local, State, regional, and Federal 
capacities to manage the coastal region, and for other 
purposes, having considered the same, reports favorably thereon 
without amendment and recommends that the bill do pass.

                          Purpose of the Bill

    This bill would require the Secretary of Commerce, acting 
through the Administrator of the National Oceanic and 
Atmospheric Administration (NOAA), to establish a constituent-
driven program that provides a digital information portal to 
efficiently integrate coastal data with decision-support tools, 
training, and best practices and to encourage the collection of 
geospatial data to inform and improve local, State, and Federal 
management of coastal regions.

                          Background and Needs

    Over 40 percent of all Americans currently live in coastal 
regions, and these regions account for nearly half of total 
economic productivity in the United States.\1\ Recent extreme 
weather events have highlighted the vulnerability of these 
regions to the devastating and costly effects of natural 
disasters, particularly coastal storms and flooding.\2\ In 
order to ensure that these communities remain safe and 
prosperous, local planners and emergency managers in coastal 
regions need access to high-quality, accurate data and spatial 
planning tools, like Geographic Information Services (GIS).\3\ 
While some coastal counties and cities have high-quality data 
and multiple local planners and coastal managers, many areas do 
not have the staff or resources to meet their coastal 
management needs.\4\
---------------------------------------------------------------------------
    \1\NOAA Digital Coast, ``Socioeconomic Data Summary'' (https://
coast.noaa.gov/data/digitalcoast/pdf/socioeconomic-data-summary.pdf).
    \2\NOAA's National Centers for Environmental Information, 
``Billion-Dollar Weather and Climate Disasters: Overview'' (https://
www.ncdc.noaa.gov/billions/).
    \3\See American Planning Association, ``NOAA Digital Coast'' 
(https://www.planning.org/
research/digitalcoast/project/).
    \4\Paul Barnes, prepared statement submitted to the Senate 
Committee on Commerce, Science, and Transportation for a June 5, 2018, 
hearing entitled ``A Decade of the Digital Coast Partnership Program: 
Successes and Opportunities'' (https://www.commerce.senate.gov/
services/files/29f9b5a9-8efe-4512-98fb-a6ca6c556048).
---------------------------------------------------------------------------
    The Digital Coast web-based information platform helps 
coastal communities better prepare for storms, plan for 
changing water levels, and strengthen coastal economic 
development planning efforts.\5\ The Digital Coast program is a 
web-based, flexible collection of data, tools, trainings, and 
case studies designed to help coastal managers and technicians 
across the United States. While the Digital Coast was developed 
and is currently maintained by NOAA's Office for Coastal 
Management, hundreds of organizations and Federal, State, and 
local agencies have contributed valuable content. Currently 
there are over 2,100 contributed datasets, including GIS layers 
for topography, bathymetry, and land use cover, as well as 
economic data, hazard exposure, and water quality data, to name 
a few.\6\ The partnership also seeks to unify groups that might 
not otherwise work together, and supports events for the 
community like conferences, webinars, workshops, and meetings. 
The partner organizations also meet regularly with their 
stakeholders to provide feedback about tools, resources, and 
trainings to NOAA. This resource is intended to be the 
proverbial one-stop-shop for the Nation's coastal management 
community, making it an important resource for both the public 
and private sectors,\7\ and providing coordination between 
organizations but also environmental and economic 
understanding.
---------------------------------------------------------------------------
    \5\Tyson Fettes, prepared statement submitted to the Senate 
Committee on Commerce, Science, and Transportation for a June 5, 2018, 
hearing entitled ``A Decade of the Digital Coast Partnership Program: 
Successes and Opportunities'' (https://www.commerce.senate.gov/
services/files/e7590c43-e103-4689-98f2-625274e09ad1).
    \6\NOAA Digital Coast, ``Data'' (https://coast.noaa.gov/
digitalcoast/data/).
    \7\NOAA Digital Coast, ``Frequently Asked Questions'' (https://
coast.noaa.gov/data/digitalcoast/pdf/faq.pdf).
---------------------------------------------------------------------------
    The Digital Coast provides numerous tools for coastal 
communities to decipher and use highly detailed mapping data to 
make improved decisions and smart investments in their 
coastlines. One tool that the program provides is a coastal 
flood exposure mapper, which supports communities that are 
assessing their coastal hazard risks and vulnerabilities 
(Figure 1). This tool also provides guidance for using the maps 
to engage community members and stakeholders, which can often 
support communities' efforts to implement safer zoning and 
development plans to mitigate coastal risks.

              [GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]

    Figure 1. Coastal Flood Exposure Mapper Screenshot, NOAA Digital 
Coast.\8\

    \8\NOAA Digital Coast, ``Coastal Flood Exposure Mapper'' (https://
coast.noaa.gov/digitalcoast/tools/flood-exposure.html).

    Another tool is the coastal county snapshots, which provide 
local citizens, coastal managers, and elected officials with 
easy-to-understand charts and graphs that describe complex 
---------------------------------------------------------------------------
coastal and economic data (Figures 2 and 3).

              [GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]

    Figure 2. Coastal County Snapshots Screenshot, NOAA Digital 
Coast.\9\

    \9\NOAA Digital Coast, ``Coastal County Snapshots'' (https://
coast.noaa.gov/digitalcoast/tools/snapshots.html).

              [GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]

    Figure 3. Coastal County Snapshots Screenshot, NOAA Digital 
---------------------------------------------------------------------------
Coast.\10\

    \10\NOAA Digital Coast, ``Coastal County Snapshots'' (https://
coast.noaa.gov/digitalcoast/tools/snapshots.html).

    For the snapshots, Digital Coast users can select a county 
of interest and the website automatically produces the content, 
creating a helpful education tool that includes clear graphics, 
like the number of critical facilities within the floodplain. 
Current snapshot topics include flood exposure, wetland 
benefits, and ocean and Great Lakes jobs. This tool helps 
planners, managers, and local citizens plan for development and 
community expansion into the future, continue ocean-based 
economic growth, and explore how to protect areas at risk, 
including wetlands and ecosystem services.
    The Digital Coast also includes over 25 training courses, 
which help to build participants' technical skills for working 
with the data and tools provided, and to build capacity for 
integrating natural and social science into projects and 
decision making.\11\ NOAA is continuing to incorporate more 
data and is working with different constituent groups, 
including the partner organizations, to understand additional 
information needs and skill gaps, as well as share additional 
examples of how existing information is being used across the 
United States. NOAA is also working closely with many of the 
private contractors who supply data to the Digital Coast in 
order to identify deficiencies in the data and tools in order 
to meet the needs of the partnership.
---------------------------------------------------------------------------
    \11\NOAA Digital Coast, ``Strategic Plan for the Digital Coast 2016 
to 2021'' (https://coast.noaa.gov/data/digitalcoast/pdf/digitalcoast-
strategic-plan.pdf).
---------------------------------------------------------------------------

                          Summary of Provision

    This bill would establish a digital informational portal 
through the Secretary of Commerce and the Administrator of NOAA 
encouraging the integration of the collection of geospatial and 
remote sensing data.

                          Legislative History

    S. 1069, the Digital Coast Act, was introduced on April 9, 
2019, by Senator Baldwin (for herself and Senators Cantwell, 
Murkowski, and Sullivan) and was referred to the Committee on 
Commerce, Science, and Transportation of the Senate. On 
November 13, 2019, the Committee met in open Executive Session 
and, by voice vote, ordered S. 1069 reported favorably without 
amendment.

                            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]


    S. 1069 would direct the National Oceanic and Atmospheric 
Administration (NOAA) to continue implementing the agency's 
Digital Coast Program. Under that program, NOAA makes 
geospatial data, decision-support tools, and best practices 
regarding the management of coastal areas available on a public 
website. The bill also would direct NOAA to focus additional 
data collection efforts on underserved coastal areas, such as 
in the Arctic.
    The bill would authorize the appropriation $4 million 
annually over the 2020-2024 period for NOAA to implement the 
program. In 2019, NOAA used $2 million of appropriated funds to 
carry out the program. Because CBO scores continuing 
resolutions on an annualized basis, in 2020, CBO assumes that 
the NOAA will allocate the same amount from funds made 
available under the current continuing resolution (Public Law 
116-59). As a result, CBO estimates that S. 1069 would 
authorize an increase in spending subject to appropriation in 
2020 of $2 million, the difference between the authorized 
amount and the annualized amount under the continuing 
resolution. Based on historical spending patterns for the 
affected grants, CBO estimates that implementing the bill would 
cost $16 million over the 2020-2024 period and $2 million after 
2024 (see Table 1).
    S. 1069 also would authorize NOAA to collect and spend 
fees, without further appropriation, for training, workshops 
and conferences related to the Digital Coast program. Any such 
collection and spending would be classified as direct spending. 
CBO estimates that the net effect of such collections and 
spending would be negligible because the spending would 
probably occur soon after any receipt.
    The costs of the legislation, detailed in Table 1, fall 
within budget function 300 (natural resources and environment).

                TABLE 1.--ESTIMATED INCREASES IN SPENDING SUBJECT TO APPROPRIATION UNDER S. 1069
----------------------------------------------------------------------------------------------------------------
                                                                By fiscal year, millions of dollars--
                                                    ------------------------------------------------------------
                                                       2020      2021      2022      2023      2024    2020-2024
----------------------------------------------------------------------------------------------------------------
Estimated Authorization............................         2         4         4         4         4         18
Estimated Outlays..................................         1         3         4         4         4         16
----------------------------------------------------------------------------------------------------------------
aS. 1069 would authorize the appropriation of $4 million in 2020 for the National Oceanic and Atmospheric
  Administration (NOAA) to implement the Digital Coast Program. However, using information from NOAA, CBO
  estimates that $2 million has been allocated on an annualized basis from funds made available under the
  current continuing resolution (Public Law 116-59), which provided appropriations through November 21, 2019
  Thus, the estimated authorization for 2020 ($2 million) is equal to the specified amount ($4 million) minus
  the annualized amount from the continuing resolution ($2 million).

    On October 10, 2019, CBO transmitted a cost estimate for 
H.R. 2189, the Digital Coast Act, as ordered reported by the 
House Committee on Natural Resources on September 18, 2019. The 
two pieces of legislation are similar. CBO's estimates of the 
cost to implement those bills differ because of differences in 
the authorization of appropriations in each bill.
    The CBO staff contact for this estimate is Robert Reese. 
The estimate was reviewed by H. Samuel Papenfuss, Deputy 
Assistant Director for Budget Analysis.

                      Regulatory Impact Statement

    Because S. 1069 does not create any new programs, the 
legislation will have no additional regulatory impact, and will 
result in no additional reporting requirements. The legislation 
will have no further effect on the number or types of 
individuals and businesses regulated, the economic impact of 
such regulation, the personal privacy of affected individuals, 
or the paperwork required from such individuals and businesses.

                   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 ``Digital Coast Act''.

Section 2. Findings.

    This section would provide congressional findings regarding 
the following:
   The Digital Coast is an effective means of Federal 
        partnerships with State, local, and nongovernmental 
        organizations.
   Access to advanced geospatial information 
        surrounding coastal regions is critical for development 
        within the United States.
   More than half of the U.S. population currently 
        lives on or near a coast and many more are expected to 
        move to these areas in the next 10 years.
   U.S. coastal counties average triple the national 
        average of people per square mile.
   Coastal counties issue more construction permits of 
        various types per day than similar non-coastal 
        counties.
   More than half the U.S. economic productivity is 
        located in coastal areas.
   Highly advanced geospatial and remote sensing data 
        play a large role in various areas of the decision 
        making and management in coastal zones.

Section 3. Definitions.

    This section would define the terms ``coastal region'', 
``coastal State'', ``Federal Geographic Data Committee'', 
``remote sensing and other geospatial'', and ``Secretary''.

Section 4. Establishment of the Digital Coast.

    This section would establish a program that utilizes 
geospatial data, decision support, and best practices to 
address coastal management issues. The Secretary would ensure 
that the program provides data integration, development tools, 
training, and documentation archived on the Digital Coast 
website through NOAA and that this information is readily 
available to and in compliance with Federal Geographic Data 
Committees.
    The Secretary shall coordinate with Federal, State, and 
local coastal managers and decision makers, including various 
Federal agencies and committees regarding various coastal 
activities and issues. As the Secretary considers it necessary 
to establish standards and protocols, the Secretary shall 
assure the interoperability of remote sensing and geospatial 
data to all users of the information within specified groups. 
The Secretary shall also coordinate and provide assistance to 
the Federal Geographic Data Committee and develop and maintain 
best practices documents to be shared with the U.S. Geological 
Survey, Corps of Engineers, and other various Federal agencies.
    In order to maximize the use of remote sensing and 
geospatial data, the Secretary shall prioritize mitigating the 
gaps and needs in data filing for underserved coastal areas, 
support the continued efforts to coordinate the acquisition and 
integration of crucial data sets needed for coastal management 
including specified areas, and integrate this data with other 
data in order to benefit the broadest range of individuals 
impacted.
    The Secretary shall engage in specified financial 
agreements for the operation and growth of the program and 
assess and collect fees for designated activities that advance 
the purpose of the program. The fees may not exceed the sum of 
the total cost of the specified activity including designated 
expenses and shall be used for only those explicit activities 
and expenses.
    The Secretary may establish publicly available tools for 
specified tracking and data collection. There shall be 
authorized $4 million per year for fiscal year 2020-2024.

                        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]