[House Report 117-602]
[From the U.S. Government Publishing Office]
117th Congress } { Report
HOUSE OF REPRESENTATIVES
2d Session } { 117-602
======================================================================
CLIMATE ADAPTATION SCIENCE CENTERS ACT
_______
December 7, 2022.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Grijalva, from the Committee on Natural Resources, submitted the
following
R E P O R T
together with
DISSENTING VIEWS
[To accompany H.R. 6654]
[Including cost estimate of the Congressional Budget Office]
The Committee on Natural Resources, to whom was referred
the bill (H.R. 6654) to direct the Secretary of the Interior to
establish a National Climate Adaptation Science Center and
Regional Climate Adaptation Science Centers to respond to the
effects of extreme weather events and climate trends, and for
other purposes, having considered the same, reports favorably
thereon with an amendment and recommends that the bill as
amended do pass.
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Climate Adaptation Science Centers
Act'' or the ``CASC Act''.
SEC. 2. DEFINITIONS.
In this Act:
(1) Adaptation.--The term ``adaptation'' means--
(A) the process of adjustment to actual or expected
climate and the effects of extreme weather, climate
trends, and climate variability; and
(B) protection, management, and conservation efforts
designed to maintain or enhance the ability of people,
fish, wildlife, plants, land, ecosystems, and water of
the United States to withstand, adjust to, or recover
from the effects of extreme weather, climate trends,
and climate variability.
(2) Advisory service activities.--The term ``advisory service
activities'' means activities including--
(A) sharing climate science and climate adaptation
knowledge between National and Regional Climate
Adaptation Science Center researchers, stakeholders,
and other partners;
(B) building collaborations between National and
Regional Climate Adaptation Science Center researchers,
stakeholders, and other partners; and
(C) integrating climate adaptation science into
natural and cultural resource management, decision-
making and planning.
(2) Cultural resources.--The term ``cultural resources''--
(A) means those features and values related to
cultural heritage; and
(B) includes--
(i) biological species with cultural heritage
or ceremonial importance, and historic and
precontact sites, cultural landscapes, trails,
structures, inscriptions, art, and artifacts on
Federal lands or representative of the culture
of Indian Tribes, Native Hawaiians, and Native
American Pacific Islanders; and
(ii) resources considered to be cultural
resources according to the traditional
knowledge of Indian Tribes, Native Hawaiians,
and Native American Pacific Islanders.
(3) Committee.--The term ``Committee'' means the Advisory
Committee on Climate and Natural Resource Sciences established
under section 6.
(4) Consortium institution.--The term ``consortium
institution'' means college, university, State cooperative
institution, State agency, Indian Tribe, Tribal College or
University, Historically Black College or University, Tribal
organization, Native Hawaiian organization, minority-serving
institution, or other educational institution or organization,
Federal agency, public or private organization, or any other
party within each regional center other than the United States
Geological Survey and the host institution.
(5) Department.--The term ``Department'' means the Department
of the Interior.
(6) Ecosystem services.--The term ``ecosystem services''
means those benefits that ecosystems provide humans and human
society, including clean air, clean water, and other
economically important services.
(7) Historically black colleges and universities.--The term
``Historically Black Colleges and Universities'' has the same
meaning given the term ``part B institutions'' in section 322
of the Higher Education Act of 1965 (20 U.S.C. 1061).
(8) Host institution.--The term ``host institution'' means
the non-Federal lead organization within each regional center.
(9) Indian tribe.--The term ``Indian Tribe'' has the meaning
given the term in section 4 of the Indian Self-Determination
and Education Assistance Act (25 U.S.C. 5304(e)).
(10) Minority-serving institution.--The term ``minority-
serving institution'' means a Hispanic-serving institution, an
Alaska Native-serving institution, a Native Hawaiian-serving
institution, a Predominantly Black Institution, an Asian
American and Native American Pacific Islander-serving
institution, or a Native American-serving nontribal institution
(as described in section 371 of the Higher Education Act of
1965 (20 U.S.C. 1067q(a))).
(11) National center.--The term ``National Center'' means the
National Climate Adaptation Science Center established under
section 3(a).
(12) Native american pacific islanders.--The term ``Native
American Pacific Islanders'' means any descendent of the
aboriginal people of any island in the Pacific Ocean that is a
territory of the United States.
(13) Native hawaiian.--The term ``Native Hawaiian'' means any
individual who is a descendant of the aboriginal people who,
prior to 1778, occupied and exercised sovereignty in the area
that now constitutes the State of Hawaii.
(14) Native hawaiian organization.--The term ``Native
Hawaiian organization'' means--
(A) the Office of Hawaiian Affairs;
(B) Hui Malama I Na Kupuna O Hawai'i Nei; and
(C) any other organization that--
(i) serves and represents the interests of
Native Hawaiians;
(ii) has as a primary and stated purpose the
provision of services to Native Hawaiians; and
(iii) has expertise in Native Hawaiian
Affairs.
(15) Natural resources.--The term ``natural resources'' has
the meaning given that term in section 11.14 of title 43, Code
of Federal Regulations.
(16) Regional center.--The term ``regional center'' means one
of the Regional Climate Adaptation Science Centers established
under section 3(a) that provide support for specific geographic
locations in the United States.
(17) Secretary.--The term ``Secretary'' means the Secretary
of the Interior.
(18) State.--The term ``State'' means--
(A) a State of the United States;
(B) the District of Columbia;
(C) American Samoa;
(D) Guam;
(E) the Commonwealth of the Northern Mariana Islands;
(F) Puerto Rico; and
(G) the Virgin Islands of the United States.
(19) Tribal college or university.--The term ``Tribal College
or University'' means an institution that--
(A) qualifies for funding under the Tribally
Controlled Colleges and Universities Assistance Act of
1978 (25 U.S.C. 1801 et seq.) or the Navajo Community
College Act (25 U.S.C. 640a note); or
(B) is cited in section 532 of the Equity in
Educational Land-Grant Status Act of 1994 (7 U.S.C. 301
note).
(20) Tribal organization.--The term ``Tribal organization''
means--
(A) the recognized governing body of any Indian
Tribe; or
(B) any legally established organization of Indians
that is--
(i) controlled, sanctioned, or chartered by
the recognized governing body of an Indian
Tribe; or
(ii)(I) democratically elected by the adult
members of the Indian community to be served by
such organization; and
(II) includes the maximum participation of
Indians in all phases of its activities.
(21) University.--The term ``university'' has the meaning
given to the term ``institution of higher education'' in
section 101(a) of the Higher Education Act of 1965 (20 U.S.C.
1001(a)).
SEC. 3. ESTABLISHMENT AND DUTIES.
(a) Establishment.--
(1) In general.--The Secretary, in collaboration with States,
Indian Tribes, and other partner organizations, shall establish
a program to be known as the ``National and Regional Climate
Adaptation Science Centers'', which shall--
(A) provide scientific expertise to agencies,
organizations, individuals, Indian Tribes, tribal
organizations, and Native Hawaiian organizations
engaged in the management of natural resources,
cultural resources, and ecosystem services for the
purpose of informing decisions that aid adaptation to a
changing climate and extreme weather events; and
(B) include a National Climate Adaptation Science
Center and Regional Climate Adaptation Science Centers.
(2) Chief; directors.--
(A) Chief.--The Chief of the National Center shall be
a United States Geological Survey employee and shall be
responsible for national-scale and network-wide
strategic initiatives, science direction, and
partnerships.
(B) Directors.--Each regional center shall have--
(i) a Federal Director who shall--
(I) be a United States Geological
Survey employee;
(II) report directly to the Chief of
the National Center; and
(III) be responsible for region-
specific and cross-regional strategic
initiatives and implementation of
climate science research agendas; and
(ii) a Host Institution Director who shall--
(I) carry out the terms and
conditions of the financial assistance
award;
(II) lead the institutional
consortium in each region; and
(III) oversee training and capacity
building at the host and consortium
institutions.
(C) Cooperative work.--Each Regional Federal Director
and each Host Institution Director shall work
cooperatively to further the mission of the relevant
regional center.
(D) Administration.--The National Center and all
regional centers shall be administered by the United
States Geological Survey.
(b) Duties of the National Center.--In collaboration with Federal
agencies, States, Indian Tribes, Tribal organizations, Native
Hawaiians, Native Hawaiian organizations, Native American Pacific
Islanders, and other partner organizations, the National Center shall--
(1) serve as the national office for the regional centers;
(2) provide leadership and guidance on administration,
partnerships, information management, and communications;
(3) develop and facilitate coordination among the regional
centers;
(4) coordinate and collaborate with other Federal agencies
working on similar research and activities to--
(A) minimize, as much as possible, the duplication of
research and effort; and
(B) use, as much as possible, existing data in the
development of new or ongoing research;
(5) conduct research on cross-regional and national science
priorities;
(6) support regional centers that--
(A) are hosted at a university, or a consortium of
universities or other research institutions, within the
region of each regional center;
(B) are collaborations between the Federal Director
and the Host Institution Director and their staffs to
address the broad scientific mission and goals as
defined by the National Center in a manner that is
relevant to its specific geographic region and in
cooperation with State and local governments, Indian
Tribes, Tribal organizations, Native Hawaiians, Native
Hawaiian organizations, Native American Pacific
Islanders, and other entities within that region;
(C) promote research, education, training, and
advisory service activities to stakeholders, Tribal
governments, and the public via informational
publications, trainings, and other outreach methods;
and
(D) receive funding at the host institution through
cooperative agreements, contracts, and grants under
section 4; and
(7) acting through the Chief of the National Center, with
respect to the regional centers--
(A) evaluate and assess the performance of the
programs of regional centers every five years, using
the priorities, guidelines, and qualifications
established by the Secretary under this section, and
determine if the programs are well managed and carry
out high-quality research, education, training, and
advisory service activities; and
(B) subject to the availability of appropriations,
allocate funding among regional centers so as to--
(i) conduct regionally relevant research,
education, training, and advisory service
activities in each of the regions;
(ii) encourage collaborations among regional
centers to address regional and national
priorities established under this section;
(iii) ensure successful implementation and
operation of regional centers;
(iv) to the maximum extent consistent with
other provisions of this Act, provide a stable
base of funding in support of the regional
centers on 5-year terms, with additional funds
available annually subject to the availability
of appropriations;
(v) encourage and promote coordination and
cooperation between the research, education,
training, and advisory service activities of
the Department and those of the host and
consortium institutions; and
(vi) pay the official Federal Government
negotiated overhead rate to the host
institution and partners on the basic agreement
establishing the location of the regional
center.
(c) Authorities of the National Center.--The National Center may--
(1) procure the services of appropriate public and private
agencies and institutions and other qualified persons to
conduct its work; and
(2) operate and fund a network of not fewer than nine
regional centers that shall address the impacts of climate
trends and variability, including extreme weather events, on
natural and cultural resources and ecosystem services.
(d) Designation of the Regional Centers.--
(1) Existing regional center designations.--
(A) In general.--Any institution or consortium of
institutions designated as a regional center before the
date of enactment of this Act shall participate in one
final competition for its status as a regional center
upon the conclusion of its existing 5-year term to
assure that the host institutions and association
consortium institutions update proposals recognizing
the long-term commitment as a host.
(B) Recompetes.--After the next competition for
regional center after the date of enactment of this
Act, a designated regional center shall not have to
recompete on 5-year terms, but shall be subject to
review on 5-year terms as described in paragraph (2).
After competed, the final agreements shall only be
recompeted in the event of a failed review.
(2) Reviews of the regional centers.--
(A) The Chief of the National Center, in consultation
with the Committee, shall establish guidelines for 5-
year merit reviews of each regional center, which shall
include guidelines for --
(i) the establishment of a statement of
objectives, agreed upon by the National Center
and regional host institutions at the beginning
of the 5-year term, that outline the
expectations of activities or measures of
success to be completed during the agreed upon
period; and
(ii) an independent merit review, conducted
by the National Center, of the host
institution's activities as related to the
statement of objectives.
(B) If a regional center does not meet the
requirements included in the statement of objective as
determined by the independent merit review referred to
in subparagraph (A)(ii), the host institution or
consortium of institutions may not continue as a host
of a regional center.
(C) If a host institution or consortium of
institution fails a merit review referred to in
subparagraph (A)(ii), the Chief of the National Center
may give the host institution or consortium of
institutions a probationary period of one year. After
the one-year probationary period, the Chief of the
National Center shall undertake an additional review
referred to in subparagraph (A)(ii) to determine if the
host institution or consortium of institutions shall--
(i) continue as a host of a regional center;
or
(ii) not continue as a host of a regional
center, in which case the Chief of the National
Center shall initiate a competitive process to
select a new host institution .
(D) The Chief of the National Center shall ensure
that reviews completed pursuant to this paragraph are
publicly available.
(2) Changes to consortium institutions.--The Chief of the
National Center, in consultation with the Federal Director and
Host Institution Director of a regional center, may add or
remove consortium institutions at any time to address regional
and national priorities established under this section.
(3) FACA.--Committees, subcommittees, and working groups
appointed by Federal Directors of the regional centers pursuant
to this subsection shall not be subject to the Federal Advisory
Committee Act (5 U.S.C. App.).
(e) Duties of the Regional Centers.--In collaboration with Federal
and State natural resources agencies and departments, Indian Tribes,
Tribal organizations, Native Hawaiians, Native Hawaiian organizations,
Native American Pacific Islanders, Tribal Colleges or Universities,
Historically Black Colleges or Universities, minority-serving
institutions, universities, other research or educational institutions,
and other partner organizations, regional centers shall develop
research, education, training, and advisory service priorities
regarding the impacts of climate trends and variability on natural and
cultural resource management in their regions for the purpose of
climate adaptation.
(f) Project Solicitation .--Subject to the availability of
appropriations, each regional center shall undergo a project
solicitation process annually that shall--
(1) include regionally identified science priority topics;
(2) work with science partners in the region to develop a
scientific review process to assure the highest quality of
proposals are selected; and
(3) final decisions on annual project selections shall be
made by the Federal Directors of the regional centers.
SEC. 4. GENERAL AUTHORITY TO ENTER INTO CONTRACTS, GRANTS, COOPERATIVE
AGREEMENTS, AND INTERAGENCY AGREEMENTS.
(a) Authority.--The Director of the United States Geological Survey
is authorized to enter into contracts, grants, and cooperative
agreements with a host institution or consortium institution to further
the research, education, training, and advisory service activities of
the Department or its partners relating to impacts of climate trends
and variability. This authority supplements all other laws relating to
the Department and is not to be construed as limiting or repealing any
existing authorities.
(b) Legal Instruments.--The Director of the United States Geological
Survey may use a contract, grant, cooperative agreement, or interagency
agreement as the legal instrument reflecting a relationship between the
Secretary and a host institution or consortium institution, to further
the duties under section 3 without regard to--
(1) any requirements for competition;
(2) section 6101 of title 41, United States Code; or
(3) subsections (a) and (b) of section 3324 of title 31,
United States Code.
(c) Participation of Federal Agencies.--Notwithstanding any other
provision of law, any Federal agency may participate in any such
cooperative agreement under this section by contributing funds through
the National Center or otherwise if it is mutually agreed that the
objectives of the agreement shall further the authorized programs of
the contributing agency.
(d) Approval Required.--In any case where a contract is let or grant
made to an organization to perform services benefitting more than one
Indian Tribe, the approval of each such Indian Tribe shall be a
prerequisite to the letting or making of such contract or grant.
SEC. 5. INTERAGENCY COOPERATION.
Each department, agency, or other instrumentality of the Federal
Government, that is engaged in or concerned with, or that has authority
over, matters relating to natural and cultural resources, ecosystem
services, or climate variability or change, including all member
agencies of the United States Global Change Research Program--
(1) shall, upon a written request from the Secretary, furnish
any available data or other information that the Secretary
deems necessary to carry out any provision of section 3;
(2) shall cooperate with the National Center, regional
centers, and duly authorized officials thereof;
(3) may make available, on a reimbursable basis or otherwise,
any personnel (with their consent and without prejudice to
their position and rating), service, or facility which the
Chief of the National Center deems necessary to carry out any
provision of section 3; and
(4) may transfer budgetary resources or otherwise enter into
interagency agreements, including funding, facilities,
computational resources, data, or other tangible or intangible
resources, between the National Center or regional centers to
aid collaborative work among Federal agencies, when approved by
the Chief of the National Center and their counterpart in the
other Federal agency.
SEC. 6. COMMITTEES.
(a) Authority to Establish Committees.--The Chief of the National
Center may establish committees or working groups and procedures to
facilitate public participation in the advisory process, such as a
national advisory committee for the National Center, stakeholder
advisory committees and science implementation panels for the regional
centers, and working groups for review of competitive.
(b) Advisory Committee.--
(1) Establishment.--Not later than 180 days after the date of
the enactment of this Act, and pursuant to the Federal Advisory
Committee Act (5 U.S.C. App.), the Secretary shall establish an
Advisory Committee on Climate and Natural Resource Sciences to
advise the National and Regional Climate Adaptation Science
Centers on the following:
(A) The contents of a national strategy identifying
key climate adaptation science priorities to advance
the management of natural and cultural resources in the
face of climate change.
(B) The nature, extent, and quality of relations with
and facilitating engagement of key partners at the
regional center level.
(C) The nature and effectiveness of mechanisms to
effectively deliver science information and tools, and
build capacity, to aid the natural and cultural
resource management community and decision-makers in
adapting to a changing climate.
(D) Mechanisms that may be employed by the National
Center to ensure high standards of scientific quality
and integrity in its products.
(E) The integration of equity, particularly for
historically underserved communities, in the operation
of the National Center and regional centers.
(2) Voting members.--The Committee shall have not fewer than
15 voting members who shall be appointed by the Secretary. Each
voting member shall be an employee of--
(A) an Indian Tribe;
(B) a Tribal organization;
(C) a Native Hawaiian organization;
(D) a State or local government;
(E) nongovernmental organization whose primary
mission is conservation and related scientific and
advocacy activities;
(F) an academic institution; or
(G) other sectors, environmental justice
organizations, or private industry.
(3) Non-voting members.--A Host Institution Director who is
elected by the various Host Institution Directors shall serve
as a non-voting member of the Committee. No individual is
eligible to be a voting member of the Committee if the
individual is--
(A) a Host Institution Director;
(B) a full-time officer or employee of the United
States; or
(C) a voting member of the Committee who is an
applicant for or beneficiary of any grant or contract
under this Act shall abstain from voting when there is
a conflict of interest.
(4) Chair.--The Director of the United States Geological
Survey shall appoint a Committee Chair from among the members
of the Committee.
(5) Vice chair.--The Committee shall select one voting member
to serve as the Vice Chair, who shall act as Chair in the
absence or incapacity of the Chair.
(6) Nominations.--Not less than once each year, the Secretary
shall publish a notice in the Federal Register soliciting
nominations for membership on the Committee.
(7) Term of office.--(A) The term of office of a voting
member of the Committee shall be not more than 3 years.
(B) No individual may serve more than two consecutive terms
as a voting member of the Committee.
(C) The Chair may extend the term of office of a voting
member of the Committee by up to 1 year.
(D) Any individual appointed to a partial or full term may be
reappointed for one additional full term.
(8) Duties.--The Committee shall identify and recommend
priorities for ongoing research needs on the issues described
in section 3(e) to inform the research priorities of the
National Center.
(9) Estimated number and frequency of meetings.--The
Committee shall meet approximately one to two times annually,
and at such other times as designated by the Director of the
United States Geological Survey.
(c) Committees; Working Groups.--
(1) In general.--At the direction of the Secretary, the Chief
of the National Center may establish committees or working
groups to provide input on the science priorities,
implementation of science programs, review of competitive
proposals, and evaluation of the National Center and the
regional centers.
(2) Members.--The committees or working groups shall, to the
extent practicable, include members from Federal and State
government, universities, private sector, nongovernmental
organizations, Indian Tribes, Tribal organizations, and Native
Hawaiian organizations.
(3) Public participation.--The Secretary may establish
procedures to facilitate public participation in the advisory
process, including providing advance notice of meetings,
providing adequate opportunity for public input and comment,
maintaining appropriate records, and making a record of the
proceedings of meetings available for public inspection.
(4) Implementation; availability of records.--The Secretary
shall ensure that the procedures described in paragraph (3) are
adopted and implemented and that the records described in
paragraph (3) are accurately maintained and available for
public inspection.
(5) FACA.--(A) The committees or working groups shall not be
considered advisory committees under the Federal Advisory
Committee Act (5 U.S.C. App.).
(B) Seeking advice and input under subparagraph (A) shall not
be subject to the Federal Advisory Committee Act (5 U.S.C.
App.).
SEC. 7. AUTHORIZATION OF APPROPRIATIONS.
There is authorized to be appropriated to the Secretary to carry out
this Act not less than--
(1) $84,000,000 for fiscal year 2023;
(2) $94,000,000 for fiscal year 2024;
(3) $104,000,000 for fiscal year 2025;
(4) $114,000,000 for fiscal year 2026; and
(5) $124,000,000 for fiscal year 2027.
PURPOSE OF THE BILL
The purpose of H.R. 6654 is to direct the Secretary of the
Interior to establish a National Climate Adaptation Science
Center and Regional Climate Adaptation Science Centers to
respond to the effects of extreme weather events and climate
trends.
BACKGROUND AND NEED FOR LEGISLATION
The United States Geological Survey (USGS) at the U.S.
Department of the Interior is a science agency that provides
impartial information on earth systems and resources, including
water availability, land use, natural resources, and
ecosystems. Within USGS, the Climate Adaptation Science Centers
(CASCs) work specifically on science to help better understand
and adapt to the impacts of climate change. The CASCs are a
partnership-driven effort that teams scientists from USGS and
research institutions with regional natural and cultural
resource managers and local communities to help adapt to a wide
range of changing conditions.\1\
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\1\See generally Climate Adaptation Science Centers, USGS, https://
www.usgs.gov/programs/climate-adaptation-science-centers (last visited
Dec. 4, 2022).
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The CASCs have been funded through annual appropriations
from Congress since 2008 but are not permanently authorized in
statute. From FY18 to FY21, President Trump's budget requests
attempted to cut funding for the CASCs significantly, but
Congress maintained stable funding.\2\ In FY 2022, the CASCs
received $54 million.
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\2\See various at Budget Archives, USGS Office of Bud., Planning &
Integration, https://www.usgs.gov/bpi/budget-archives.
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The CASC network consists of one National Center at USGS
headquarters in Reston, VA, and nine Regional Centers across
the country. The Regional Centers are each headquartered at a
university within their specified region and work on regional
issues with local stakeholders. The nine regions are Alaska,
Pacific Islands, Northwest, Southwest, North Central, South
Central, Midwest, Northeast, and Southeast.\3\
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\3\Learn About the Regional CASCs, USGS, https://www.usgs.gov/
programs/climate-adaptation-science-centers/learn-about-regional-cascs
(last visited Dec. 5, 2022).
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Each Regional Center is situated at a ``host institution,''
or local university, with multiple ``consortium institution''
members: universities, Indian tribes, tribal colleges or
universities, or other research institutions or nongovernmental
organizations within the region. Each Regional Center's current
host and consortium intuitions are listed on a USGS website.\4\
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\4\CASC Network and Region Maps, USGS, https://www.usgs.gov/
programs/climate-adaptation-science-centers/casc-network-and-region-
maps (last visited Dec. 5, 2022).
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The CASC network partners with various stakeholders,
including resource managers within federal and state agencies,
tribes, other Indigenous communities, and nongovernmental
organizations. The CASCs work directly with their partners to
identify priority issues related to climate change, develop
research plans, and produce useful science products.
Each year, the National Center distributes a portion of the
total appropriations for the CASC program to each Regional
Center. The Regional Centers then identify projects to work on
according to pre-established priorities and regional needs and
publish all science for public use.
The CASC network develops science directly applicable to
climate adaptation decisions, actions, and plans by emphasizing
engagement with their partners. These projects are designed to
address the science-based specific needs of the community with
whom they partner.
The National and Regional CASCs work on a broad range of
projects related to climate adaptation. For example, the North
Central CASC partnered with the Wildlife Conservation Society
and the Wyoming Game and Fish Department on a workshop
incorporating climate data into the 2020 Wyoming Statewide
Habitat Plan. The workshop led to revisions in the Habitat Plan
that specifically responded to the impact of climate change.\5\
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\5\Project Spotlight: North Central CASC Aids Resource Agency in
Adopting Climate-Informed Management Practices, USGS (Mar. 10, 2021),
https://www.usgs.gov/news/project-spotlight-north-central-casc-aids-
resource-agency-adopting-climate-informed-management.
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In Mississippi, in the aftermath of Hurricane Katrina,
Congress directed the Mobile District U.S. Army Corps of
Engineers to repair barrier islands as the first line of
defense against future storms. The Southeast CASC partnered
with the Army Corps and other stakeholders early in the
planning process to coordinate stakeholder objectives. The Army
Corps needed to consult with the National Marine Fisheries
Service about endangered Gulf sturgeon, the U.S. Fish and
Wildlife Service about construction-displaced sea turtles and
birds, and the Bureau of Ocean Energy Management about
equipment for sand dredging, as well as other local and
regional partners. The many federal and state agencies often
have conflicting needs, goals, and jurisdictions, creating
challenges for management and coordination. The Southeast CASC
facilitated stakeholder meetings to preemptively determine the
main project objectives, potential problems that could arise
during construction, and the consequences and tradeoffs of
different actions, leading to effective collaboration among
partners.\6\
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\6\Project Spotlight: Southeast CASC Project Contributes to
Successful Barrier Island Restoration, USGS (May 18, 2021), https://
www.usgs.gov/news/project-spotlight-southeast-casc-project-contributes-
successful-barrier-island-restoration.
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In Juneau, Alaska, 100-year glacial floods have occurred
every year for the last ten years. When the first such recent
flood occurred in 2011, flood models were entirely based on
rainfall rather than the effect of climate change on nearby
glaciers. The Alaska CASC partnered with the National Oceanic
and Atmospheric Administration, the National Weather Service,
the Municipality of Anchorage, and the City and Borough of
Juneau, to create new models to predict glacial flooding so
communities and scientists could better understand and prepare
for potential catastrophic events.\7\
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\7\Project Spotlight: Alaska CASC Helps Juneau Community Understand
Mysterious Glacial Outburst Floods, USGS (October 28, 2021), https://
www.usgs.gov/programs/climate-adaptation-science-centers-program/news/
project-spotlight-alaska-casc-helps-juneau; see also Christian
Kienholz, Jamie Pierce, Eran Hood et al., Deglacierization of a
Marginal Basin and Implications for Outburst Floods, Mendenhall
Glacier, Alaska, 8 Frontiers in Earth Sci. art. 137 (2020), https://
doi.org/10.3389/feart.2020.00137.
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The CASC network recognizes that Native Americans, Alaska
Natives, Native Hawaiians, Pacific Islanders, and other
Indigenous peoples often face disproportionate impacts from
climate change. The CASCs prioritize tribal nations, tribal
organizations, and other Indigenous groups as partners in their
work. Each Regional CASC hosts a Tribal Resilience Liaison,
which connects tribal nations, tribal nation agencies, tribal
organizations, and other Indigenous communities to information,
data, resources, and expertise that facilitate culturally
appropriate research and planning. CASC Tribal Liaisons have
worked with over 100 tribal nations on adaptation plans and
vulnerability assessments and have supported nearly 200 tribal
climate camps, summits, trainings, workshops, retreats, and
presentations.
The final component of the CASCs' work is education and
training. The CASC network has supported over 200 students and
early-career scientists and professionals through fellowship
and training programs. According to USGS, ``Participants
conduct ground- breaking research on climate change impacts and
adaptation, develop skills in science communication and partner
engagement, and build networks of peers and mentors to support
future career development.''\8\
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\8\Education, USGS https://www.usgs.gov/programs/climate-
adaptation-science-centers/science/education (last visited Dec. 5,
2022).
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H.R. 6654 would permanently authorize the Climate
Adaptation Science Center program at the USGS, authorize
appropriations for FY23-FY27, and make several technical
changes to the program.
The bill codifies that there should be nine Regional
Centers. It also codifies a pathway to make changes to
consortium institutions members in the middle of a five-year
agreement rather than waiting until the end of an agreement
cycle. Rather than having open competition for a host
institution every five years, the bill introduces performance-
based evaluations for hosts. After one final round of
competition, hosts can remain unless they fall below USGS'
standards. If they fall below standard, then USGS may recommend
open competition.
The bill codifies the tools the CASCs can use to serve
stakeholders and land managers, including training and
education for early career professionals. Under the Trump
administration, the CASCs were not allowed to do ``training''
or ``education'' and were limited to ``workforce development.''
This specifically limited work the CASCs could do with tribal
partners, as training is a key to bringing tribal partners up
to speed on data products and other science.
The bill includes CASC-specific language for the USGS
Office of Acquisition and Grants. The bill establishes
additional options for how the host institutions can be funded
and supported. Previously, CASC activities were authorized
through the Organic Act of 1879, which authorized the United
States Geological Survey, but did not include language for
education, training, or mentoring, occasionally leading to some
activities being denied.
The legislation reinstates a Federal Advisory Committee
that was dismantled during the Trump Administration. The
Federal Advisory Committee guides where the CASCs should focus
their efforts and what scientific questions and emerging issues
they should prioritize. The Federal Advisory Committees are
also a formalized way for the CASCs to check in with
stakeholders, including other federal agencies and tribes, and
for stakeholders to check in with each other.
COMMITTEE ACTION
H.R. 6654 was introduced on February 9, 2022, by
Representative Raul M. Grijalva (D-AZ). The bill was referred
solely to the Committee on Natural Resources, and within the
Committee to the Subcommittee on Energy and Mineral Resources
and the Subcommittee for Indigenous Peoples of the United
States. On February 17, 2022, the Subcommittee on Energy and
Mineral Resources held a hearing on the bill. On July 13, 2022,
the Natural Resources Committee met to consider the bill. The
Subcommittees were discharged by unanimous consent. Chair
Grijalva offered an amendment in the nature of a substitute.
Rep. Blake D. Moore (R-UT) offered an amendment designated
Moore #2 to the amendment in the nature of a substitute. The
amendment was not agreed to by a roll call vote of 17 yeas and
22 nays, as follows:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
Rep. Moore offered an amendment designated Moore #3 to the
amendment in the nature of a substitute. The amendment was not
agreed to by a roll call vote of 17 yeas and 21 nays, as
follows:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
Ranking Member Westerman offered an amendment designated
Westerman #1 to the amendment in the nature of a substitute.
The amendment was not agreed to by voice vote. Rep. Boebert
offered an amendment designated Boebert #338 to the amendment
in the nature of a substitute. The amendment was not agreed to
by a roll call vote of 16 yeas and 20 nays, as follows:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
Rep. Tom Tiffany (R-WI) offered an amendment designated
Tiffany #4 to the amendment in the nature of a substitute. The
amendment was not agreed to by a roll call vote of 17 yeas and
21 nays, as follows:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
The amendment in the nature of a substitute was agreed to
by voice vote. The bill, as amended, was adopted and ordered
favorably reported to the House of Representatives by a roll
call vote of 22 yeas and 18 nays, as follows:
HEARINGS
For the purposes of clause 3(c)(6) of House rule XIII, the
following hearing was used to develop or consider this measure:
hearing by the Subcommittee on Energy and Mineral Resources
held on February 17, 2022.
SECTION-BY-SECTION ANALYSIS
Section 1. Short title
Section 2. Definitions
This section provides definitions for key terms.
Section 3. Establishment and duties
This section establishes the framework and duties of the
National and Regional Climate Adaptation Science Centers.
The Chief of the National Center will be a United States
Geological Survey (USGS) employee. Each Regional Center will
have a USGS employee Federal Director and a Host Institution
Director who work collaboratively.
In collaboration with other Federal agencies, states,
tribes, and other partner organizations, the National Center
will serve as the national office for the Regional Centers,
providing leadership, facilitating coordination, and conducting
research on cross-regional climate science priorities.
Subject to the availability of appropriations, the National
Center will provide a stable base of funding for no fewer than
nine Regional Centers. The Regional Centers will be hosted at a
university or consortium of universities within the designated
region. Existing Regional Centers will have to compete for
their status one final time upon the conclusion of its five-
year term to ensure that the host institutions and associated
consortium institutions update their proposals recognizing
long-term commitments. Afterward, a Regional Center will not
have to compete for its status but will be subject to review on
five-year terms. The Chief of the National Center will
establish guidelines for merit reviews of the Regional Centers
and host institutions. The Chief of the National Center can add
or remove a consortium member at any time to address regional
and national priorities.
The duties of the Regional Centers are to collaborate with
local and regional stakeholders, including federal and state
agencies, tribes, and other partner organizations within the
region, to develop research, education, training, and advisory
services regarding the impacts of climate change on natural and
cultural resource management.
Section 4. General authority to enter into contracts, grants,
cooperative agreements, and interagency agreements
This section grants general authority for USGS to enter
into contracts, grants, cooperative agreements, and interagency
agreements with a host institution or consortium institution.
Any federal agency may participate in any cooperative agreement
by contributing funds through the National Center.
Section 5. Interagency cooperation
This section allows federal departments or agencies with
authority over issues relating to natural resources, cultural
resources, or climate change to work with the CASCs. They can
make personnel, services, facilities, and data available to the
CASCs, and may transfer funding, facilities, or other resources
to the CASCs to aid collaborative work.
Section 6. Committees
This section establishes procedures for advisory committees
and working groups, as well as for facilitating public
participation in the advisory process. This section sets up an
Advisory Committee on Climate and Natural Resources that can
include employees of tribes, tribal organizations, Native
Hawaiian organizations, state and local government, host
institutions, nongovernmental organizations, academic
institutions, and organizations in the private sector.
The Secretary of the Interior may establish procedures to
facilitate public participation in the advisory process, which
informs science priorities.
Section 7. Authorization of appropriations
This section authorizes appropriations for FY 2023-FY 2027
at the following levels.
$84,000,000 for fiscal year 2023;
$94,000,000 for fiscal year 2024;
$104,000,000 for fiscal year 2025;
$114,000,000 for fiscal year 2026; and
$124,000,000 for fiscal year 2027.
COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS
Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of
rule XIII of the Rules of the House of Representatives, the
Committee on Natural Resources' oversight findings and
recommendations are reflected in the body of this report.
COMPLIANCE WITH HOUSE RULE XIII AND CONGRESSIONAL BUDGET ACT
1. Cost of Legislation and the Congressional Budget Act.
With respect to the requirements of clause 3(c)(2) and (3) of
rule XIII of the Rules of the House of Representatives and
sections 308(a) and 402 of the Congressional Budget Act of
1974, as well as clause 3(d) of rule XIII of the Rules of the
House of Representatives, the Committee has received the
following estimate for the bill from the Director of the
Congressional Budget Office:
U.S. Congress,
Congressional Budget Office,
Washington, DC, November 14, 2022.
Hon. Raul M. Grijalva,
Chairman, Committee on Natural Resources,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 6654, the CASC
Act.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Madeleine
Fox.
Sincerely,
Phillip L. Swagel,
Director.
Enclosure.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
H.R. 6654 would authorize National and Regional Climate
Adaptation Science Centers, which are maintained by the U.S.
Geological Survey (USGS) within the Department of the Interior.
The centers provide expertise on extreme weather and climate
trends to federal and nonfederal groups that manage natural and
cultural resources. The bill also would require the department
to establish a committee to advise the centers on research
priorities. The centers received $41 million in funding for
fiscal year 2022.
H.R. 6654 would authorize the appropriation of $84 million
for fiscal year 2023 for the centers' operations. That amount
would increase by $10 million annually through 2027. Using
historical spending patterns for USGS programs, CBO estimates
that implementing H.R. 6654 would cost $471 million over the
2023-2027 period and $509 million over the 2023-2032 period,
assuming appropriation of the authorized amounts.
The costs of the legislation, detailed in Table 1, fall
within budget function 300 (natural resources).
TABLE 1.--ESTIMATED INCREASES IN SPENDING SUBJECT TO APPROPRIATION UNDER H.R. 6654
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By fiscal years, millions of dollars--
---------------------------------------------
2023 2024 2025 2026 2027 2023-2027
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Authorization..................................................... 84 94 104 114 124 520
Estimated Outlays................................................. 60 86 98 109 118 471
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This program received an appropriation of $41 million in 2022 and that appropriation has been extended under the
continuing resolution, Public Law 117-180. The amount in 2023 shows what would be authorized in the bill and
is not adjusted for the amounts in the continuing resolution.
The CBO staff contact for this estimate is Madeleine Fox.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
2. General Performance Goals and Objectives. As required by
clause 3(c)(4) of rule XIII, the general performance goals and
objectives of this bill are to direct the Secretary of the
Interior to establish a National Climate Adaptation Science
Center and Regional Climate Adaptation Science Centers to
respond to the effects of extreme weather events and climate
trends.
EARMARK STATEMENT
This bill does not contain any Congressional earmarks,
limited tax benefits, or limited tariff benefits as defined
under clause 9(e), 9(f), and 9(g) of rule XXI of the Rules of
the House of Representatives.
UNFUNDED MANDATES REFORM ACT STATEMENT
According to CBO, this bill contains no unfunded mandates
as defined by the Unfunded Mandates Reform Act.
FEDERAL ADVISORY COMMITTEE ACT STATEMENT
This bill would authorize the CASCs, establish an Advisory
Committee on Climate and Natural Resource Sciences, and
authorize for the Chief of the National Center and the Federal
Directors of the regional centers to establish additional
advisory committees as appropriate. In reporting the bill
favorably to the House of Representatives, the Committee on
Natural Resources finds that these functions would be better
performed by these advisory committees than by one or more
agencies or by some another existing advisory committee.
EXISTING PROGRAMS
This bill does not establish or reauthorize a program of
the federal government known to be duplicative of another
program. Such program was not included in any report from the
Government Accountability Office to Congress pursuant to
section 21 of Public Law 111-139. The most recent Catalog of
Federal Domestic Assistance published pursuant to 31 U.S.C.
Sec. 6104 does not identify other programs as related to the
National and Regional Climate Adaptation Science Centers (CFDA
No. 15.820) authorized by this bill.
APPLICABILITY TO LEGISLATIVE BRANCH
The Committee finds that the legislation does not relate to
the terms and conditions of employment or access to public
services or accommodations within the meaning of section
102(b)(3) of the Congressional Accountability Act.
PREEMPTION OF STATE, LOCAL, OR TRIBAL LAW
Any preemptive effect of this bill over state, local, or
tribal law is intended to be consistent with the bill's
purposes and text and the Supremacy Clause of Article VI of the
U.S. Constitution.
CHANGES IN EXISTING LAW
If enacted, this bill would make no changes to existing
law.
DISSENTING VIEWS
H.R. 6654 (Grijalva) would authorize the Climate Adaptation
Science Centers (CASC) program at the U.S. Geological Survey
(USGS) at a total of $605 million over five years.
The CASC program is intended to assist research efforts to
support land management planning for environmental and climate-
related issues. The program consists of one national center and
nine regional centers; the regions are Alaska, Midwest, North
Central, Northeast, Northwest, Pacific Islands, South Central,
Southeast, and Southwest.
Currently, Congress appropriates funding to the National
CASC on an annual basis. A portion of that funding stays at the
National CASC, with the remainder divided amongst the nine
regions. From there, research is funded through two mechanisms.
First, approximately $4.5 million is provided to each ``host
university'' (universities where regional CASCs are housed)
over a five-year period for cooperative agreements between the
host university and USGS. This funding is for the physical
location of the regional CASC and salaries for graduate and
post-doctorate students to assist in research efforts. The
five-year science agenda under these cooperative agreements is
largely formed by a stakeholder outreach process.
The vast majority of research is performed through a second
funding mechanism, in which regional CASCs each select one
annual research project to fund. Once funding is distributed to
the regions from the National CASC, the director of each region
releases a call for proposals. Ultimately, the director of each
regional CASC determines which project will be researched and
funded, after receiving input from advisory committees. The
directors of the regional CASCs have significant discretion
over this project selection process, and there is no
standardization of methodology for project prioritization. This
means it is difficult for Congress to determine if research
topics are properly prioritized in accordance with the stated
goal of the program, self-described as, ``to deliver science to
help fish, wildlife, water, land, and people adapt to a
changing climate.''
For instance, in January 2022, the National CASC published
a study on the projected impacts of climate change on
ecosystems in Madagascar. Studies like this one demonstrate a
departure from the original intent of the program, which was to
research environment and climate-related issues to help land
managers in regional and local decision-making. Unfortunately,
the program as authorized by this bill has shifted away from
the original goal of actionable, localized science.
Under H.R. 6645, the CASC program would be authorized at a
total of $605 million over five years. This would nearly triple
the funding of the program compared to the fiscal year (FY)
2021 appropriated level of $41.3 million--without controls for
overhead costs. Historically, USGS research facilities have had
overhead rates varying quite widely, from about 15 percent to
more than 40 percent; university overhead costs can be even
higher. USGS has cited growing demand for climate adaptation
data, as well as questions from land managers on how to apply
it, as the rationale for the major program increases, but it
remains extremely unclear exactly how this additional funding
will be utilized. The lack of mission clarity and absence of
cost controls poses significant concerns about maintaining
accountability for taxpayer dollars.
Finally, there appears to be significant overlap between
CASC and other programs. The National Science Foundation and
other USGS programs, such as the Cooperative Research Units
(CRUs), are already authorized and funded to analyze very
similar research topics. It is difficult to tell how the CASC
program is distinct from existing research efforts, or why it
needs its own funding to compete with longstanding programs.
This proposed major increase in funding with a lack of
overhead limitations presents concerns regarding accountability
to the taxpayers and oversight of the program. Furthermore, the
expansion and vagueness of eligible research areas, including
the broad discretion given regional CASC directors in selecting
research projects, also generates concerns regarding overlap
with existing federal programs, as well as a departure from the
original intent of the CASC program.
For these reasons, I oppose H.R. 6654.
Bruce Westerman.
[all]