[Senate Report 119-85]
[From the U.S. Government Publishing Office]
Calendar No. 196
119th Congress } { Report
SENATE
1st Session } { 119-85
_______________________________________________________________________
WATER RESEARCH OPTIMIZATION ACT OF 2025
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 1523
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
October 21, 2025.--Ordered to be printed
_______
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2025
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
first session
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROGER F. WICKER, Mississippi AMY KLOBUCHAR, Minnesota
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
TODD YOUNG, Indiana TAMMY DUCKWORTH, Illinois
TED BUDD, North Carolina JACKY ROSEN, Nevada
ERIC SCHMITT, Missouri BEN RAY LUJAN, New Mexico
JOHN CURTIS, Utah JOHN W. HICKENLOOPER, Colorado
BERNIE MORENO, Ohio JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia LISA BLUNT ROCHESTER, Delaware
CYNTHIA M. LUMMIS, Wyoming
Brad Grantz, Majority Staff Director
Lila Harper Helms, Democratic Staff Director
Calendar No. 196
119th Congress } { Report
SENATE
1st Session } { 119-85
======================================================================
WATER RESEARCH OPTIMIZATION ACT OF 2025
_______
October 21, 2025.--Ordered to be printed
_______
Mr. Cruz, from the Committee on Commerce, Science, and Transportation,
submitted the following
R E P O R T
[To accompany S. 1523]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 1523) to modify operations of
the National Water Center of the National Oceanic and
Atmospheric Administration, 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. 1523 is to reauthorize the National Water
Center (NWC), add additional functions to the NWC, and require
the Cooperative Institute for Research to Operations in
Hydrology be administered through the Office of Water
Prediction of the National Weather Service (NWS).
Background and Needs
Water-related disasters are some of the most frequent and
damaging hazards in the United States.\1\ Flooding alone
results in an average of $8 billion in damage annually and an
average of more than 80 fatalities per year.\2\ Prolonged
drought, also a water-related hazard, impacts agriculture,
drinking water supplies, and energy systems. For example,
drought conditions in the Mississippi River Basin in 2022
slowed barge traffic and disrupted grain shipments, and caused
saltwater from the Gulf to move into the Mississippi and
contaminate drinking water in New Orleans.\3\
---------------------------------------------------------------------------
\1\Adam B. Smith, ``2022 U.S. Billion-Dollar Weather and Climate
Disasters in Historical Context,'' NOAA, https://www.climate.gov/news-
features/blogs/beyond-data/2022-us-billion-dollar-weather-and-climate-
disasters-historical.
\2\``Flood Safety and Preparedness,'' NOAA, National Weather
Service, https://www.weather.gov/afc/FloodSafety; ``Weather Related
Fatality and Injury Statistics,'' NOAA, National Weather Service,
https://www.weather.gov/media/hazstat/80year_2024.pdf.
\3\Pamela Glass, ``Mississippi River Drought Is Officially Over,
but Situation Remains Fragile,'' WorkBoat, https://www.workboat.com/
mississippi-river-drought-is-officially-over-but-situation-remains-
fragile.
---------------------------------------------------------------------------
Recent weather events across the country have highlighted
the need for advanced water prediction. In Central Texas,
rapid-onset flash flooding in July 2025 resulted in the deaths
of more than 135 people, including 27 at Camp Mystic along the
Guadalupe River.\4\ In the Midwest, persistent rainfall in 2024
led to severe flooding along the Missouri River,\5\ and, in
eastern Kentucky, flash floods in 2022 killed 45 people and
devastated rural towns.\6\ In 2024, Hurricane Helene caused
catastrophic flooding across western North Carolina, resulting
in 176 deaths and an estimated $78.7 billion in damages, making
it the 7th costliest U.S. hurricane.\7\ In 2023, Western States
experienced a series of atmospheric rivers that dropped large
amounts of rain in California, helping ease drought conditions,
but causing over $3 billion in flood damage, and killing 21
people.\8\ In May 2025, severe flash flooding from an
atmospheric river impacted multiple States across the United
States, including Tennessee, Pennsylvania, Maryland, and Texas,
resulting in fatalities, widespread evacuations, and
significant infrastructure damage. The storm stretched over
1,000 miles from South Florida to southern Pennsylvania,
bringing intense rain to many areas, including more than 4
inches in the mountains of western North Carolina.\9\
---------------------------------------------------------------------------
\4\Yan Zhuang et al., ``What We Know About the Floods in Central
Texas,'' The New York Times, July 20, 2025, https://nytimes.com/
article/texas-floods-kerr-county.html.
\5\``2024 Midwest State of Climate Report,'' Midwest Regional
Climate Center and NOAA, 2024, https://mrcc.purdue.edu/files/
ClimateSummary/Annual/2024/2024_Midwest_Stateofthe
ClimateReport.pdf.
\6\Adrian Sainz, ``A Look at Some of the Deadliest Floods in the US
in the Last 25 Years,'' AP News, updated July 6, 2025, https://
apnews.com/article/flood-deaths-flash-flooding-weather-
408b11abe0389f38c93d8722b9d15dd0.
\7\Andrew Hagen et al., National Hurricane Center Tropical Cyclone
Report: Hurricane Helene, NOAA, National Weather Service, April 8,
2025, https://www.nhc.noaa.gov/data/tcr/AL092024_Helene.pdf.
\8\Corinne Bowers and Jack Baker, ``Clusters of Atmospheric Rivers
Amp Up California Storm Damages,'' Stanford Report, January 19, 2024,
https://news.stanford.edu/stories/2024/01/
clusters-atmospheric-rivers-costlier-expected.
\9\Ben Noll, ``Atmospheric River Reaches Mid-Atlantic, Bringing
Dangerous Downpours,'' The Washington Post, May 13, 2025, https://
www.washingtonpost.com/weather/2025/05/13/midatlantic-storm-flooding-
virginia-florida-rain/.
---------------------------------------------------------------------------
The NWC serves as the Nation's hub for water-related
research, forecasting, and emergency response coordination.\10\
It was codified under the Coordinated Ocean Observations and
Research Act of 2020,\11\ which authorized the NWC to improve
national water prediction capabilities. The NWC works to
improve forecasts for water-related disasters, such as flash
floods, riverine flooding,\12\ and droughts,\13\ which pose
significant threats to communities across the United States.
The NWC's primary functions also include developing advanced
hydrologic models, such as the National Water Model, which
provides high-resolution forecasts of streamflow and water
levels across the country. These models are crucial for
predicting and managing water-related hazards and enabling
timely and informed decision-making by emergency managers and
water resource planners.\14\
---------------------------------------------------------------------------
\10\``National Water Center Products and Services,'' NOAA, Office
of Water Prediction, https://www.weather.gov/owp/operations.
\11\Public Law 116-271.
\12\``National Water Center Products and Services,'' NOAA, Office
of Water Prediction, https://www.weather.gov/owp/operations.
\13\``The National Water Center,'' NOAA, Office of Water
Prediction, https://www.weather.gov/media/owp/oh/docs/
National_Water_Center_2023.pdf.
\14\``The National Water Model,'' NOAA, Office of Water Prediction,
https://water.noaa.gov/about/nwm.
---------------------------------------------------------------------------
Through NWS and the Office of Water Prediction, NOAA leads
hydrologic forecasting and operates the NWC. The U.S.
Geological Survey (USGS) provides critical water data, such as
streamflow and groundwater levels, that feed into NOAA
models.\15\ The Cooperative Institute for Research to
Operations in Hydrology (CIROH), located at the University of
Alabama, supports the NWC by researching and improving water
forecasting models and tools.\16\ Partnering with universities
and Federal agencies, CIROH helps transition new science into
operational use, with the goal of making forecasts more
accurate, actionable, and useful.
---------------------------------------------------------------------------
\15\``Water Resources Mission Area,'' U.S. Geological Survey,
https://www.usgs.gov/mission-areas/water-resources.
\16\``Cooperative Institute for Research to Operations in
Hydrology,'' University of Alabama, https://ciroh.ua.edu/about.
---------------------------------------------------------------------------
Summary of Provisions
S. 1523 would do the following:
Put the NWC under the Office of Water Prediction and
direct the NWC to lead the transition of Federal water
research to NOAA operations.
Make the NWC the primary center within NOAA for
coordinating water research and forecasting across the
Federal Government.
Require the use of supercomputing for water
resources modeling and incorporation of such models
into the Unified Forecast System.
Require the Office of Water Prediction to oversee
River Forecast Centers and administer the duties and
activities of the Cooperative Institute for Research to
Operations in Hydrology in coordination with the NWC.
Extend authorization of appropriations to the
program through 2030.
Legislative History
S. 1523 was introduced on April 30, 2025, by Senator Britt
(for herself and Senator Welch) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On May 21, 2025, the Committee met in open Executive
Session and, by voice vote, ordered S. 1523 reported favorably
with an amendment (in the nature of a substitute).
118th Congress
S. 4500, the Water Research Optimization Act of 2024, was
introduced on June 11, 2024, by Senator Britt (for herself and
Senator Welch) and was referred to the Committee on Commerce,
Science, and Transportation of the Senate.\17\
---------------------------------------------------------------------------
\17\S. 4500 was included as section 505 of the Weather Act
Reauthorization Act of 2024 (S. 5601), which was introduced on December
18, 2024, by Senator Cantwell (for herself and Senator Cruz) and was
referred to the Committee on Commerce, Science, and Transportation of
the Senate.
---------------------------------------------------------------------------
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. 1523 would reauthorize and expand the operations of the
National Water Center (NWC) administered by the National
Oceanic and Atmospheric Administration (NOAA).
Specifically, the bill would:
Require the NWC to coordinate water research
and weather forecasting activities with other federal
entities;
Require NOAA to use a supercomputing system
to improve weather and climate forecasting; and,
Require NOAA to supervise operations of each
river forecast center, which are regional offices that
provide river level and flood forecasts, in
coordination with the NWC.
The bill would authorize the appropriation of $46 million
annually from 2025 through 2028 for those purposes.
Based on historical spending patterns, CBO estimates that
implementing the bill would cost $170 million over the 2025-
2030 period and $9 million after 2030, assuming appropriation
of the authorized amounts.
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. 1523
----------------------------------------------------------------------------------------------------------------
By fiscal year, millions of dollars--
--------------------------------------------------------------
2025-
2025 2026 2027 2028 2029 2030 2030
----------------------------------------------------------------------------------------------------------------
Authorization.................................... 46 46 46 46 0 0 184
Estimated Outlays................................ 3 38 37 44 31 17 170
----------------------------------------------------------------------------------------------------------------
The CBO staff contact for this estimate is Kelly Durand.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
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. 1523, as reported, would improve the NWC's ability to
provide the public with water resources, science, information,
and prediction services. The bill would not create any new
programs or impose any new regulatory requirements and,
therefore, would not subject individuals or businesses to new
regulations.
economic impact
S. 1523, as reported, would not have any significant
adverse impacts on the Nation's economy. The bill may have a
positive economic impact by reducing the impact of water-
related disasters. By defining requirements, the bill would
synchronize the functions of the NWC and increase coordination
across the Federal Government agencies.
privacy
S. 1523, as reported, would not have any adverse impact on
the personal privacy of individuals.
paperwork
S. 1523, as reported, would not require a major increase in
paperwork burdens. It would reduce reporting requirements by
eliminating an operations and services policy directive for the
NWC.
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 ``Water Research Optimization Act of 2025''.
Section 2. Modification of operations of National Water Center.
This section would specify that the NWC be established
within the Office of Water Prediction of NWS. It would add a
requirement that the NWC lead the transition of Federal water
research, including model development, into operations of NOAA
and NWS.
This section would add a requirement that the NWC serve as
the primary center within NOAA for research, development,
collaboration, and coordination of water research and water
forecast activities of the Federal Government. It would require
the NOAA Administrator to support the development of advanced
water resources modeling capabilities using current and future
supercomputing systems and to incorporate modeling capabilities
into the unified forecast system. It would also require that
the NWC integrate and promote consistency among national and
regional hydrological forecast operations.
This section would eliminate an expired reporting
requirement for an operations and policy directive for the
then-newly established the NWC. This report was delivered in
2021.
This section would place the administration and management
of the River Forecast Centers and the management of CIROH under
NOAA's Office of Water Prediction.
Lastly, this section would authorize appropriations of $46
million for each fiscal year 2026 through 2030.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
the bill, as reported, are shown as follows (existing law
proposed to be omitted is enclosed in black brackets, new
material is printed in italic, existing law in which no change
is proposed is shown in roman):
COORDINATED OCEAN OBSERVATIONS AND RESEARCH ACT OF 2020
[42 U.S.C. 10371]
TITLE III--WATER PREDICTION AND FORECASTING
SEC. 301. WATER PREDICTION AND FORECASTING.
(a) National Water Center.--
(1) Establishment.--
(A) In general.--The Under Secretary of
Commerce for Oceans and Atmosphere shall
establish, within the Office of Water
Prediction of the National Weather Service, a
center--
(i) to serve as the research and
operational center of excellence for
hydrologic analyses, forecasting, and
related decision support services
within the National Oceanic and
Atmospheric Administration and the
National Weather Service; [and]
(ii) to facilitate collaboration
across Federal and State departments
and agencies, academia, and the private
sector on matters relating to water
resources[.]; and
(iii) to lead the transition of water
research by the Federal Government,
including model development, into
operations of the National Oceanic and
Atmospheric Administration and the
National Weather Service.
(B) Designation.--The center established
under subparagraph (A) shall be known as the
``National Water Center''.
(2) Functions.--The functions of the National Water
Center shall include the following:
(A) Improving understanding of water
resources, stakeholder needs regarding water
resources, and identifying science and services
gaps relating to water resources.
(B) Developing and implementing advanced
water resources modeling capabilities.
(C) Facilitating the transition of hydrologic
research into operations.
(D) Delivering analyses, forecasts, and
inundation information and guidance for all
hydrologic events in the United States,
including flash flooding, riverine flooding,
and water resources outlooks.
(E) In coordination with warning coordination
meteorologists, providing decision-support
services to inform emergency management and
water resources decisions.
(F) Serving as the primary center within the
National Oceanic and Atmospheric Administration
for research, development, collaboration, and
coordination of the water research and water
forecast activities of the Administration and
other centers and networks of the Federal
Government, including those of the Department
of Agriculture, the Army Corps of Engineers,
the Bureau of Reclamation, the United States
Geological Survey, and the Federal Emergency
Management Agency.
(G) Integrating and promoting consistency
among national and regional hydrological
forecast operations and service delivery.
(3) Incorporation into unified forecast system.--The
Under Secretary shall use the Weather and Climate
Operational Supercomputing System, or any successor
system, to support the development and implementation
of advanced water resources modeling capabilities under
paragraph (2)(B) and shall incorporate those modeling
capabilities into the unified forecast system.
[(b) National Instructions.--
[(1) In general.--Not later than one year after the
date of the enactment of this Act, the Under Secretary,
acting through the Director of the National Weather
Service, shall make public an operations and services
policy directive for the National Water Center.
[(2) Contents.--The directive required by paragraph
(1) shall include national instructions to perform the
functions of the National Water Center, including the
following:
[(A) Operational staff responsibilities.
[(B) Guidelines for content, format, and
provision of hydrologic and inundation products
developed by the National Water Center.
[(C) Procedures for cooperation and
coordination between the National Water Center,
the National Weather Service National Centers
for Environmental Prediction, National Weather
Service River Forecast Centers, and National
Weather Service Weather Forecast Offices.]
[(c)](b) Total Water Prediction.--The Under Secretary, acting
through the Director of the Office of Water Prediction of the
National Weather Service, shall--
(1) initiate and lead research and development
activities to develop operational water resource
prediction and related decision support products;
(2) collaborate with, and provide decision support
regarding total water prediction to--
(A) the relevant Federal agencies represented
on the National Science and Technology Council,
Committee on Environment, Natural Resources,
and Sustainability and the Subcommittee on
Disaster Reduction;
(B) State water resource agencies; and
(C) State and local emergency management
agencies; and
(3) in carrying out the responsibilities described in
paragraphs (1) and (2), collaboratively develop
capabilities necessary for total water predictive
capacity, including observations, modeling, data
management, supercomputing, social science, and
communications.
(c) Organization and Administration.--The Under Secretary,
acting through the Director of the Office of Water Prediction
of the National Weather Service, shall--
(1) supervise and oversee the administration,
management, and operations of each River Forecast
Center of the National Weather Service and coordinate
those operations with the National Water Center; and
(2) administer the duties and activities of the
National Oceanic and Atmospheric Administration related
to the Cooperative Institute for Research to Operations
in Hydrology, or any successor entity, and coordinate
the activities of the Institute with the National Water
Center.
(d) Authorization of Appropriations.--There are authorized to
be appropriated to carry out the activities under this section
amounts as follows:
(1) $44,500,000 for fiscal year 2021.
(2) $45,000,000 for fiscal year 2022.
(3) $45,500,000 for fiscal year 2023.
(4) $46,000,000 for fiscal year 2024 and each of
fiscal years 2026 through 2030.
(e) Derivation of Funds.--Funds to carry out this section
shall be derived from amounts authorized to be appropriated to
the National Weather Service and the National Ocean Service
that are enacted after the date of the enactment of this Act.
* * * * * * *
[all]