Senate Report 119-86 - FOG OBSERVATIONS AND GEOGRAPHIC FORECASTING ACT

[Senate Report 119-86]
[From the U.S. Government Publishing Office]

Calendar No. 197
119th Congress } { Report
SENATE
1st Session } { 119-86
_______________________________________________________________________

FOG OBSERVATIONS AND GEOGRAPHIC FORECASTING ACT

__________

R E P O R T

of the

COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

S. 1278

[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. 197
119th Congress ] { Report
SENATE
1st Session ] { 119-86

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FOG OBSERVATIONS AND GEOGRAPHIC FORECASTING ACT

_______

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. 1278]

[Including cost estimate of the Congressional Budget Office]

The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 1278) to require the Under
Secretary of Commerce for Oceans and Atmosphere to conduct a
project to improve forecasts of coastal marine fog, and for
other purposes, having considered the same, reports favorably
thereon without amendment and recommends that the bill do pass.

PURPOSE OF THE BILL

The purpose of S. 1278 is to require the National Weather
Service (NWS) to improve fog forecasting, with the goals of
increasing vessel safety, helping the shipping industry, and
keeping commerce flowing in and out of U.S. ports.

BACKGROUND AND NEEDS

Marine fog usually occurs when warm air moves over cooler
ocean waters, or vice versa, resulting in moisture in the air
condensing into fog.\1\ Fog can reduce visibility for mariners
to less than 1 mile and, in extreme cases, to just a few feet.
Reducing visibility for mariners, especially in large vessels,
is dangerous because it can take up to a mile for a vessel to
come to a stop or change direction.\2\ Therefore, when
visibility decreases to unsafe levels due to fog, vessels are
forced to reduce speed or halt entirely, and ports may be
temporarily closed to protect life and property.\3\ Poor
visibility, often fog-associated, significantly impacts
maritime traffic safety with approximately 9 percent of ship
collisions attributed to fog or other environmental
conditions.\4\
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\1\Ismail Gultepe, Jason A. Milbrandt, and Binbin Zhou, ``Marine
Fog: A Review on Microphysics and Visibility Prediction'' in Darko
Koracin and Clive Dorman (eds.) Marine Fog: Challenges and Advancements
in Observations, Modeling, and Forecasting, Springer Atmospheric
Sciences, February 1, 2017, https://doi.org/10.1007/978-3-319-45229-
6_7.
\2\Christina Hager, ``How Difficult Is It To Operate a Massive
Container Ship?,'' CBS News, March 27, 2024, https://www.cbsnews.com/
boston/news/baltimore-bridge-collapse-boston-reaction/.
\3\National Weather Service, NOAA, ``Boating in Fog,'' https://
www.weather.gov/safety/fog-boating.
\4\Aggelos N. Pilatis et. al, ``A Statistical Analysis of Ship
Accidents (1990-2020) Focusing on Collision, Grounding, Hull Failure,
and Resulting Hull Damage,'' Journal of Marine Science and Engineering
12, no. 1 (2024): 122, https://doi.org/10.3390/jmse12010122.
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These fog-related disruptions also pose a substantial risk
to global supply chains. U.S. ports handle over 40 percent of
the Nation's international trade volume, and delays at key
facilities can ripple through the economy.\5\ Even short port
closures can result in heavy economic losses. For example, it
was estimated that the U.S. economy lost $15 million a day
after the collapse of the Francis Scott Key Bridge shut down
Port of Baltimore operations.\6\
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\5\``2025 Infrastructure Report Card,'' American Society of Civil
Engineers, https://infrastructurereportcard.org/wp-content/uploads/
2025/03/Ports.pdf.
\6\Tom Krisher, ``Baltimore Bridge Collapse: Ships Carrying Cars
and Heavy Equipment Need To Find a New Harbor,'' AP News, March 27,
2024, https://apnews.com/article/baltimore-bridge-collapse-cargo-port-
056eb1e7c5424f23ce4c049fe53bb02f.
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Though less visually dramatic than events like bridge
collapses, weather-related disruptions such as dense fog can
still bring port operations to a standstill. For example, fog
along the U.S. Gulf Coast frequently disrupts operations at
major ports, including the Houston-Galveston port complex and
the Lake Charles Port in Louisiana, causing the Houston Pilots
Association and the Lake Charles Pilots to suspended all vessel
movements due to low visibility.\7\ Similarly, Alaska
experiences frequent coastal fog in late fall and winter,
complicating maritime operations for cargo vessels and fishing
fleets. Although complete port closures are less common, fog
often delays the loading and unloading of vessels, an
especially critical issue in Alaska, where communities depend
on the timely arrival of fuel, food, and other essential
supplies.\8\ On the U.S. West Coast, San Francisco fog is
particularly famous, causing traffic issues and ground stops at
major airports.\9\
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\7\Tray Swanson, ``Persistent Fog Disrupts Ports in Texas,
Louisiana,'' Argus Media, updated November 2, 2025, https://
www.argusmedia.com/en/news-and-insights/latest-market-news/2656716-
persistent-fog-disrupts-ports-in-texas-louisiana.
\8\Kun Wang et al., ``Impacts of Arctic Sea Fog on the Change of
Route Planning and Navigational Efficiency in the Northeast Passage
during the First Two Decades of the 21st Century,'' Journal of Marine
Science and Engineering 11, no. 11 (2023): 2149, https://doi.org/
10.3390/jmse11112149.
\9\``Dense Fog for Bay Area Extended into Thursday,'' NBC Bay Area,
December 18, 2024, https://www.nbcbayarea.com/weather/dense-fog-
advisory-second-day/3739520/.
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The NWS, under the National Oceanic and Atmospheric
Administration (NOAA), provides weather data, forecasts, and
impact-based decision-support services to U.S. ports.\10\ To
ensure the continued safety of maritime operations, especially
in fog-prone regions, there is a need for additional marine-
based observations. Instruments that measure visibility,
temperature, dewpoint, wind, water levels, and the integration
of real-time marine cameras are essential for improving
situational awareness for mariners and improving forecasts.
These observations, particularly when placed strategically
along busy shipping lanes and near ports, can offer critical
insights into rapidly changing conditions that are not captured
by satellite or radar alone.\11\
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\10\``About NOAA's National Weather Service,'' National Weather
Service, https://www.weather.gov/about.
\11\National Ocean Service, NOAA, ``Ports: NOAA's Role in
Navigation and Commerce,'' https://oceanservice.noaa.gov/navigation/
ports.
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Improved high-resolution modeling capabilities driven by
these observational inputs can lead to more accurate forecasts,
allowing ports to utilize weather forecasts, particularly those
predicting fog, to enhance maritime safety and operational
efficiency.\12\ By integrating real-time data from marine-based
observation, ports can anticipate and respond to rapidly
changing conditions. This proactive approach allows for better
vessel traffic management, optimized port operations, and the
implementation of safety protocols tailored to current weather
conditions.\13\
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\12\Ibid.
\13\Lijun Hu et al., ``Enhancing Maritime Safety and Efficiency: A
Comprehensive Sea Fog Monitoring System for Ningbo Zhoushan Port,''
Atmosphere 14, no. 10 (2023): 1513, https://doi.org/10.3390/
atmos14101513.
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SUMMARY OF PROVISION

S. 1278 would require NOAA to develop a project plan to
improve marine fog forecasts with the goal of enhancing vessel
safety and reducing economic impacts of fog.

LEGISLATIVE HISTORY

S. 1278 was introduced on April 3, 2025, by Senator Cruz
(for himself and Senator Padilla) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On April 30, 2025, the Committee met in open Executive
Session and, by voice vote, ordered S. 1278 reported favorably
without amendment.

118th Congress

S. 5599, the Fog Forecast Improvement Act, was introduced
on December 18, 2024, by 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. 1278 would require the National Oceanic and Atmospheric
Administration (NOAA) to develop and implement a project to
improve forecasts of coastal marine fog. The project would
involve collecting data from commercial sources, meteorological
stations, drifting instruments, and satellites at marine
locations affected by fog-related low visibility. The bill also
would require NOAA to improve the dissemination of marine fog
advisories to better inform the public about economic and
safety risks.
Using information from NOAA, CBO estimates the following
costs for the project:
Development--$3 million in 2026 to perform
an assessment of the current system; consult with
experts, tribes, and other interested parties; and
assess modeling and weather dissemination systems.
Implementation--$19 million in 2027 for
upfront costs to expand NOAA's data collection
capabilities and procure the necessary technical
equipment.
Ongoing Annual Costs--Beginning in mid-2027,
$16 million annually for ongoing costs, including $3
million for system and infrastructure maintenance, $10
million for computing capacity, and $3 million for 11
full-time employees (at an average annual cost of
$250,000 each). Those estimated costs account for
anticipated inflation each year.
CBO assumes that S. 1278 will be enacted near the end of
fiscal year 2025 and that the estimated amounts will be
available in each year. Based on historical spending patterns
for similar activities, CBO estimates that implementing the
bill would cost $67 million over the 2025-2030 period.
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. 1278
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By fiscal year, millions of dollars--
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2025 2026 2027 2028 2029 2030 2025-2030
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Estimated Authorization........................ 0 3 27 16 16 16 78
Estimated Outlays.............................. 0 2 17 16 16 16 67
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The CBO staff contact for this estimate is Aurora Swanson.
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. 1278, as reported, would not subject individuals to new
regulations.

Economic Impact

S. 1278, as reported, is not expected to have any
significant adverse impacts on the Nation's economy. The bill
may have a positive economic impact by reducing the effect of
marine fog on commercial maritime traffic delays.

Privacy

S. 1278, as reported, would not have any adverse impact on
the personal privacy of individuals.

Paperwork

S. 1278, as reported, would not require a major increase in
paperwork burdens. In the instance where the bill would require
additional paperwork, it would require NOAA to develop a
project plan outlining the specific research activity, resource
needs, and timelines necessary to implement the goals of
enhancing vessel safety and reducing the economic impacts of
marine fog.

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 ``Fog Observations and Geographic Forecasting Act''.

Section 2. Project to improve forecasts of coastal marine fog.

This section would require NOAA to conduct a project to
improve forecasts of coastal marine fog. The goal of this
project would be to enhance vessel safety and reduce the
economic impact of coastal marine fog by expanding marine-based
observations using Federal and commercial platforms, including:
buoys, meteorological stations, stationary platforms or
drifting instruments, vessels, unmanned systems, remote sensing
technologies, and advanced algorithms that extract actionable
information from observational data, including early detection
and regular monitoring of marine fog.
This section would also require NOAA to engage with public
and private stakeholders and Tribal representatives, throughout
the planning, development, and implementation of the project.
It would require the Under Secretary of Commerce for Oceans and
Atmosphere to develop within 1 year a detailed project plan
outlining specific research activities, resource needs, and
timelines.

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.

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