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1 

39–010 

" ! SENATE 109TH CONGRESS

1st Session 

REPORT

2005

109–57 

Calendar No. 71 

NATIONAL OCEAN EXPLORATION PROGRAM 

ACT 

R E P O R T 

OF THE

COMMITTEE ON COMMERCE, SCIENCE, AND 

TRANSPORTATION 

ON

S. 39 

APRIL 13, 2005.—Ordered to be printed 


congress.#13
(II) 

SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION 

ONE HUNDRED NINTH CONGRESS

FIRST SESSION

TED STEVENS, Alaska, Chairman 

DANIEL K. INOUYE, Hawaii, Co-Chairman 

JOHN MCCAIN, Arizona 

CONRAD BURNS, Montana 

TRENT LOTT, Mississippi 

KAY BAILEY HUTCHISON, Texas 

OLYMPIA J. SNOWE, Maine 

GORDON H. SMITH, Oregon 

JOHN ENSIGN, Nevada 

GEORGE ALLEN, Virginia 

JOHN E. SUNUNU, New Hampshire 

JIM DEMINT, South Carolina 

DAVID VITTER, Louisiana 

JOHN D. ROCKEFELLER IV, West Virginia 

JOHN F. KERRY, Massachusetts 

BYRON L. DORGAN, North Dakota 

BARBARA BOXER, California 

BILL NELSON, Florida 

MARIA CANTWELL, Washington 

FRANK LAUTENBERG, New Jersey 

E. BENJAMIN NELSON, Nebraska 

MARK PRYOR, Arkansas 

LISA SUTHERLAND, Staff Director 

CHRISTINE DRAGER KURTH, Deputy Staff Director 

DAVID RUSSELL, Chief Counsel 

MARGARET CUMMISKY, Democratic Staff Director and Chief Counsel 

SAMUEL WHITEHORN, Democratic Deputy Staff Director and General Counsel 

Calendar No. 71 

109TH CONGRESS REPORT " ! SENATE 1st Session 109–57 

NATIONAL OCEAN EXPLORATION PROGRAM ACT 

APRIL 13, 2005.—Ordered to be printed 

Mr. STEVENS, from the Committee on Commerce, Science, and 

Transportation, submitted the following 

R E P O R T 

[To accompany S. 39] 

The Committee on Commerce, Science, and Transportation, to 

which was referred the bill (S. 39) to establish a coordinated national ocean exploration program within the National Oceanic and 

Atmospheric Administration, having considered the same, reports 

favorably thereon without amendment and recommends that the 

bill do pass. 

PURPOSE OF THE BILL

The purpose of S. 39, the National Ocean Exploration Program 

Act, is to establish a national ocean exploration program within 

NOAA and authorize appropriations for the program for fiscal 

years 2006 through 2017. The program’s main purpose would be to 

‘‘benefit, inform, and inspire’’ the American people, while facilitating the discovery of new living and non-living resources, documenting shipwrecks and submerged archeological sites, and encouraging the growth of new technologies. The bill would also establish 

an interagency task force to coordinate Federal and non-government cooperation. 

BACKGROUND AND NEEDS

Ocean exploration has encompassed charting ocean depth and 

bathymetry, and identifying and studying marine organisms. Although ocean exploration has occurred since the 1800s, and advances in deep-sea technologies have made it easier to identify 

structures at ocean depths, only 5 percent of the ocean floor has 

been explored to date and scientific understanding of undersea environments remains cursory. Current ocean exploration excursions 

2 

continue to probe uncharted territory and locate and identify new 

species and resources, ranging from hydrothermal vents and deep 

sea corals to shipwrecks and other cultural artifacts. The potential 

for identifying new and profitable energy sources and biomedical 

resources in the oceans is significant, but it remains largely untapped. Progress has generally been limited due to the narrow 

focus and limited financial and other support for oceans exploration 

in the Federal government. 

For decades, the ocean science, research, and education communities have called for strengthening Federal ocean exploration programs and priorities in order to fill critical scientific knowledge 

gaps, develop potential economic resources, and inspire greater 

ocean literacy in the general public. The final report to Congress 

by the U.S. Commission on Ocean Policy (the Ocean Commission), 

released on September 20, 2004, reiterated these needs. The Ocean 

Commission report highlighted the need for a strong, comprehensive ocean exploration program, citing the persistent call for a national program from various commissions since the 1970s. 

For example, the Ocean Commission notes that in the 1980s and 

1990s, NOAA and the U.S. Geological Survey (USGS) conducted a 

long-term exploration of the U.S. Exclusive Economic Zone in response to recommendations of the National Advisory Committee on 

Oceans and Atmosphere. This effort produced basic reconnaissance 

survey data, although NOAA and the USGS did not conduct more 

detailed explorations due to divergent agency missions and limited 

funding. 

In June 2000, President Clinton charged the Secretary of Commerce with recommending a national strategy for launching a new 

era of ocean exploration. To develop this strategy, the Secretary, 

through NOAA, established the President’s Panel on Ocean Exploration, which consisted of leading ocean explorers, scientists, and 

educators. This panel recommended a multidisciplinary, integrated 

national ocean exploration office with an annual budget of $75 million. In response, NOAA established the Office of Ocean Exploration. Funding for this office started at $4 million in FY2001. In 

FY2004 it increased to $12 million, and in FY2005 Congress further increased its funding to $22 million, based on the Commission’s recommendations. 

Overall, the Ocean Commission considers the Federal government’s past efforts on ocean exploration as inadequately funded 

and not comprehensive enough in scope. Under Recommendation 

25–4, the Ocean Commission calls for ‘‘significant funding’’ for ‘‘an 

expanded national ocean exploration program,’’ with NOAA and the 

National Science Foundation serving as the lead agencies, and the 

USGS and the U.S. Navy’s Office of Naval Research serving supporting roles. The recommendation also states outreach and education should be an integral component of the program. The report 

recommends an additional $30 million in the first year of implementation, rising to $110 million in annual ongoing costs, including 

infrastructure costs. Chapter 27 of the Commission’s report sets 

forth detailed recommendations for infrastructure needs of the program, including dedicated ocean exploration platforms, including 

ships and submersibles. 

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LEGISLATIVE HISTORY

S. 39 was introduced in the Senate on January 25, 2005, by Senator Stevens and referred to the Senate Committee on Commerce, 

Science, and Transportation. It is cosponsored by Senators Inouye, 

Snowe, Cantwell, Lautenberg, Kerry, and Dodd. On March 10, 

2005, the bill was considered by the Committee in an open Executive Session. The Committee, without objection or amendment, ordered S. 39 be reported. 

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: 

S. 39—National Oceanic and Atmospheric Administration 

Summary: S. 39 would direct the National Oceanic and Atmospheric Administration (NOAA) to establish and coordinate a national program for ocean exploration. The purposes of the program 

would be to explore the physical, biological, geological, archaeological, and other characteristics of the world’s oceans. In carrying 

out this program, NOAA would be authorized to coordinate scientific voyages with other federal agencies or institutions and to 

conduct public education and outreach programs. The bill also 

would direct NOAA to convene, with other federal agencies such as 

the National Aeronautics and Space Administration and the Office 

of Naval Research, a task force to provide the new program with 

available exploration technology, communications infrastructure, 

and data management systems. For those activities, the bill would 

authorize the appropriation of $45 million annually for fiscal years 

2006 through 2011 and $55 million annually for fiscal years 2012 

through 2017. 

Assuming appropriation of the authorized amounts, CBO esti- mates that implementing S. 39 would cost about $15 million in fiscal year 2006 and $180 million over the 2006–2010 period. We estimate that $420 million would be spent after 2010, including $375 

million authorized to be appropriated between 2011 and 2017. Enacting S. 39 would have no impact on revenues or direct spending. 

S. 39 contains no intergovernmental or private-sector mandates 

as defined in the Unfunded Mandates Reform Act (UMRA) and 

would impose no costs on state, local, or tribal governments. 

Estimated cost to the Federal Government: The estimated budgetary impact of S. 39 is shown in the following table. For this estimate, CBO assumes that the entire amounts authorized by the bill 

will be appropriated for each fiscal year. Outlays have been estimated on the basis of historical patterns for other NOAA programs. 

The costs of this legislation fall within budget function 300 (natural 

resources and environment). 

4 

By fiscal year, in millions of dollars— 

2006 2007 2008 2009 2010 

CHANGES IN SPENDING SUBJECT TO APPROPRIATION 1

Authorization Level ........................................................................................ 45 45 45 45 45 

Estimated Outlays ......................................................................................... 15 30 45 45 45 

1 NOAA’s National Oceans Office received appropriations of nearly $830 million for oceanic research and science activities in 2005, including some activities that are similar to the exploration program and ocean research efforts that would be authorized by this bill. 

Intergovernmental and private-sector impact: S. 39 contains no 

intergovernmental or private-sector mandates as defined in UMRA 

and would impose no costs on state, local, or tribal governments. 

State and local governments, including academic institutions, that 

participate in research, development, and education activities created by the bill would incur costs voluntarily. 

Estimate prepared by: Federal Costs: Deborah Reis; Impact on 

State, Local, and Tribal Governments: Gregory Waring; Impact on 

the Private Sector: Selena Caldera. 

Estimate approved by: Robert A. Sunshine, Assistant Director for 

Budget Analysis. 

REGULATORY IMPACT STATEMENT

In accordance with paragraph 11(b) of rule XXVI of the Standing 

Rules of the Senate, the Committee provides the following evaluation of the regulatory impact of the legislation as reported: 

NUMBER OF PERSONS COVERED

The reported bill would establish a national ocean exploration 

program within NOAA and authorize appropriations for the program for fiscal years 2006 through 2017. It does not authorize any 

new regulations and therefore will not subject any individuals or 

businesses to new regulations. 

ECONOMIC IMPACT

Section 7 would authorize $45,000,000 for each of fiscal years 

2006 through 2011, and $55,000,000 for each of fiscal years 2012 

through 2017 in appropriations to the Secretary of Commerce for 

this program. These funding levels are not expected to have an inflationary impact on the nation’s economy. 

PRIVACY

The reported bill will not have any adverse impact on the personal privacy of individuals. 

PAPERWORK

The reported bill will not increase paperwork requirements for 

the private sector. Those non-governmental partners that are interested in participating on the Exploration Technology and Infrastructure Task Force established in section 5 would likely increase 

their communications, data management, and technical expertise 

capacity related to oceans exploration. 

5 

SECTION-BY-SECTION ANALYSIS

Section 1. Short title 

Section 1 cites this Act as the ‘‘National Ocean Exploration Program Act.’’ 

Section 2. Establishment 

Section 2 would establish a coordinated national ocean exploration program within NOAA, which would work in consultation 

with the National Science Foundation. 

Section 3. Purposes 

Section 3 states that the main purpose of the program would be 

to benefit, inform, and inspire the American people about the 

oceans. The program would improve the nation’s understanding, 

appreciation, and stewardship of oceans and submerged archaeology. The program’s endeavors would be interdisciplinary and designed to facilitate the discovery of new marine natural products 

that may have social or health benefits. 

Section 4. Authorities 

Section 4 would authorize NOAA, with interested parties, to conduct interdisciplinary activities to explore and document little 

known marine resources, with an emphasis on deep ocean regions 

(e.g., seamounts) and submerged archaeological sites. The program 

would engage and educate the public by utilizing a transparent review process for proposed activities, promoting improved technology, and establishing a forum for communication to enhance the 

scientific and technical expertise of the program. It also authorizes 

the program to accept donations that could be used for exploration. 

Section 5. Exploration technology and infrastructure task force 

Section 5 would establish a task force consisting of the National 

Aeronautics and Space Administration, U.S. Geological Survey, 

U.S. Navy, and other interested agencies and partners. The task 

force would enhance the program’s use of new technology and improve its communications, data management, and technical expertise capacity through partnerships between government and other 

entities. 

Section 6. Interagency financing 

Section 6 authorizes the transfer of funds between Federal agencies, provided those funds are specifically appropriated for this program. 

Section 7. Authorization of appropriations 

Section 7 would authorize appropriations to NOAA for this program of $45,000,000 for each of fiscal years 2006 through 2011, and 

$55,000,000 for each of fiscal years 2012 through 2017. 

6 

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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