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[Senate Report 111-193]
[From the U.S. Government Publishing Office]

111th Congress                                         Calendar No. 401
 2d Session                      SENATE                          Report
                                                                111-193
_______________________________________________________________________

                                     

                                                       

      ARCTIC OCEAN RESEARCH AND SCIENCE POLICY REVIEW ACT OF 2009

                               __________

                              R E P O R T

                                 OF THE

           COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

                                   on

                                S. 1562

                                     

                  May 24, 2010.--Ordered to be printed

                 U.S. GOVERNMENT PRINTING OFFICE
89010                    WASHINGTON : 2010

       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
                     one hundred eleventh congress
                             second session

            JOHN D. ROCKEFELLER IV, West Virginia, Chairman
DANIEL K. INOUYE, Hawaii             KAY BAILEY HUTCHISON, Texas
JOHN F. KERRY, Massachusetts         OLYMPIA J. SNOWE, Maine
BYRON L. DORGAN, North Dakota        JOHN ENSIGN, Nevada
BARBARA BOXER, California            JIM DeMINT, South Carolina
BILL NELSON, Florida                 JOHN THUNE, South Dakota
MARIA CANTWELL, Washington           ROGER F. WICKER, Mississippi
FRANK R. LAUTENBERG, New Jersey      GEORGE S. LeMIEUX, Florida
MARK PRYOR, Arkansas                 JOHNNY ISAKSON, Georgia
CLAIRE McCASKILL, Missouri           DAVID VITTER, Louisiana
AMY KLOBUCHAR, Minnesota             SAM BROWNBACK, Kansas
TOM UDALL, New Mexico                MIKE JOHANNS, Nebraska
MARK WARNER, Virginia
MARK BEGICH, Alaska
                     Ellen Doneski, Chief of Staff
                   James Reid, Deputy Chief of Staff
                     Bruce Andrews, General Counsel
                 Ann Begeman, Republican Staff Director
              Brian Hendricks, Republican General Counsel
                Todd Bertoson, Republican Senior Counsel

                                                       Calendar No. 401
111th Congress                                                   Report
                                 SENATE
 2d Session                                                     111-193

======================================================================

 
      ARCTIC OCEAN RESEARCH AND SCIENCE POLICY REVIEW ACT OF 2009

                                _______
                                

                  May 24, 2010.--Ordered to be printed

                                _______
                                

     Mr. Rockefeller, from the Committee on Commerce, Science, and 
                Transportation, submitted the following

                              R E P O R T

                         [To accompany S. 1562]

    The Committee on Commerce, Science, and Transportation, to 
which was referred the bill (S. 1562) to provide for a study 
and report on research on the United States Arctic Ocean and 
for other purposes, having considered this bill, 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. 1562, the Arctic Ocean Research and Science 
Policy Review Act of 2009, is to provide for a study and report 
on research in the United States Arctic Ocean and to authorize 
the National Oceanic and Atmospheric Administration (NOAA) to 
develop an aerosols research, modeling, and monitoring program.

                          Background and Needs

UNITED STATES ARCTIC OCEAN RESEARCH

  Scientific studies have shown that the Arctic region is 
experiencing climate changes at a faster pace than anywhere 
else on the globe. These changes include warming air and ocean 
temperatures, diminishing and thinning sea ice, coastal 
erosion, thawing permafrost, and ocean acidification. Within 
the region, these changes could directly impact communities and 
their livelihoods, the distribution of living resources and 
habitats, and critical infrastructure. Arctic climate change 
could also have a global impact due to the significant 
influence the Arctic has on weather and climate patterns, ocean 
circulation, and sea level.
  The Arctic Ocean is the least understood of the world's 
oceans. Detailed knowledge of its role in global processes is 
limited due to its extreme environment and the lack of 
logistical support for interdisciplinary scientific studies. 
Greater understanding of environmental changes in the Arctic 
requires increased research on Arctic marine ecosystems, marine 
life, ocean circulation, and ocean acidification. Several 
research institutions, organizations, and Federal agencies are 
conducting critical research in the U.S. Arctic. Improved 
coordination of research activities and objectives would 
leverage the limited resources available to these endeavors and 
make sure that the research activities and programs are filling 
gaps and fostering a stronger understanding of the region as a 
whole.
  To facilitate the coordination of research activities within 
the U.S. Arctic and throughout the entire Arctic region, the 
legislation would require the Secretary of Commerce to request 
the National Research Council (NRC) to conduct a study and 
provide a comprehensive plan to coordinate, integrate, and 
synthesize Arctic Ocean research, both within the U.S. and 
across the entire Arctic. The bill would require the Secretary 
of Commerce to report back to Congress on the findings of the 
study, the recommendations of the NRC, and a research plan for 
the United States Arctic Ocean.

BLACK CARBON AND OTHER AEROSOLS RESEARCH

  Discussions about climate change and its effects on the 
Arctic region often focus on greenhouse gases; however, 
emerging information reveals that tiny airborne particles 
called atmospheric aerosols, which contain nitrates, sulfates, 
carbon, and other matter, disproportionately contribute to 
Arctic climate change.
  Aerosol particles generally reflect incoming solar radiation 
and cool the planet, which offsets the warming association with 
greenhouse gases. Black carbon, an aerosol that results from 
the incomplete combustion of biomass and fossil fuels, however, 
absorbs solar radiation and can contribute to localized 
atmospheric warming. In addition to black carbon's direct 
warming effect on the atmosphere, it also accumulates on snow 
and ice, darkening the surface, reducing its ability to reflect 
sunlight, and increasing melt rates. This, in turn, can result 
in an additional warming effect because there is less surface 
area covered with reflective snow and ice once it melts. This 
effect is prominent in the Polar regions, where black carbon 
appears to be a major contributor to melting. Recent studies 
suggested that black carbon may be responsible for 30 to 50 
percent of observed warming in the Arctic, and may be the 
second largest contributor to climate change, after carbon 
dioxide.
  Understanding regional and global climate change requires 
improved scientific knowledge of the radiative effects of 
aerosols, their cloud-nucleating properties, and their effects 
on precipitation. This bill would provide direction for NOAA's 
research on the effects of aerosols on climate and air quality 
and strengthen the agency's research in this area of climate 
science.

                         Summary of Provisions

TITLE I--UNITED STATES ARCTIC OCEAN RESEARCH

  S. 1562 would direct the Secretary of Commerce to request the 
NRC to conduct a study on the existing research and research 
advisory entities operating in the Arctic Ocean of the United 
States. It would require such study to: (1) review the breadth, 
relationship, and overlap of existing research programs and 
advisory entities engaged in U.S. Arctic Ocean research; (2) 
assess the gaps in such research and in the coordination, 
integration, and synthesis of research activities and data; (3) 
assess existing scientific information and identify additional 
information necessary, including local and traditional 
knowledge, to improve the scientific basis for Federal Agency 
environmental reviews; and (4) provide a comprehensive plan for 
long-range U.S. Arctic Ocean research and monitoring and for 
coordination, integration, and synthesis of U.S. Arctic Ocean 
research. The bill would direct the Secretary of Commerce to 
provide a report to Congress that describes the findings of the 
study and the recommendations of the NRC, along with a 
prioritized and scalable research plan for the United States 
Arctic Ocean.

TITLE II--BLACK CARBON AND OTHER AEROSOLS RESEARCH

  S. 1562 would direct NOAA to develop a plan to research, 
monitor, and model black carbon and other aerosols in 
coordination with other Federal agencies and in support of the 
United States Global Change Research Program (USGCRP). This 
plan calls for NOAA to, among other things, analyze gaps in 
scientific methods and research and identify Federal research 
priorities on black carbon and other aerosols to understand 
their role in climate change and air quality; develop a 
framework for modeling and methods that identify the source of 
the aerosols; evaluate the global and regional climate-forcing 
properties of atmospheric aerosols, and their effects on 
climate change and on the loss of sea ice; and, identify 
observation systems, needs, and assets necessary to develop and 
implement a program with NOAA.
  The bill also would direct the Administrator of NOAA to 
establish and maintain a black carbon and other aerosols 
research and monitoring program that combines observations, 
research, monitoring, and modeling activities. The program 
shall be consistent with the plan required by the bill and 
support the USGCRP.

                          Legislative History

  Senator Begich introduced the Arctic Ocean Research and 
Science Policy Review Act, S. 1562, on July 29, 2009. The Black 
Carbon and Other Aerosols Research Act, S. 1538, was also 
introduced by Senators Begich, Rockefeller, Cantwell, Inouye, 
and Nelson on July 29, 2009. Both bills were referred to the 
Committee on Commerce, Science, and Transportation. Several 
hearings of the Committee on Commerce, Science, and 
Transportation during the first session of 111th Congress 
addressed the need for improved climate science research and 
for additional research and monitoring in the Arctic Ocean. On 
December 17, 2009, the Committee met in open executive session, 
and by a voice vote, ordered S. 1562 reported with an amendment 
in the nature of a substitute.

                            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:

                                                   January 6, 2010.
Hon. John D. Rockefeller IV,
Chairman, Committee on Commerce, Science, and Transportation,
U.S. Senate, Washington, DC.
    Dear Mr. Chairman: The Congressional Budget Office has 
prepared the enclosed cost estimate for S. 1562, the Arctic 
Ocean Research and Science Policy Review Act of 2009.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact is Jeff LaFave.
            Sincerely,
                                              Douglas W. Elmendorf.
    Enclosure.

S. 1562--Arctic Ocean Research and Science Policy Review Act of 2009

    Summary: S. 1562 would authorize the appropriation of $20 
million a year over the 2010-2015 period for a National Oceanic 
and Atmospheric Administration (NOAA) program to research and 
monitor aerosols (fine particles of organic or inorganic 
materials in the atmosphere). The bill also would authorize the 
appropriation of $2 million in 2010 to assess existing research 
programs focused on portions of the Arctic Ocean off the coast 
of Alaska.
    Assuming appropriation of the authorized amounts, CBO 
estimates that implementing S. 1562 would cost $89 million over 
the 2010-2014 period and $33 million after 2014. Enacting the 
legislation would not affect direct spending or revenues.
    S. 1562 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. 1562 is shown in the following table. 
The costs of this legislation fall within budget function 300 
(natural resources and environment).

----------------------------------------------------------------------------------------------------------------
                                                               By fiscal year, in millions of dollars--
                                                    ------------------------------------------------------------
                                                       2010      2011      2012      2013      2014    2010-2014
----------------------------------------------------------------------------------------------------------------
                                  CHANGES IN SPENDING SUBJECT TO APPROPRIATION

Aerosol Research and Monitoring Program:
    Authorization Level............................        20        20        20        20        20        100
    Estimated Outlays..............................        10        17        20        20        20         87
Assess Arctic Ocean Research:
    Authorization Level............................         2         0         0         0         0          2
    Estimated Outlays..............................         1         1         0         0         0          2
    Total Changes:
        Authorization Level........................        22        20        20        20        20        102
        Estimated Outlays..........................        11        18        20        20        20         89
----------------------------------------------------------------------------------------------------------------

    Basis of estimate: For this estimate, CBO assumes that the 
legislation will be enacted early in calendar year 2010 and 
that the authorized amounts will be appropriated for each 
fiscal year. Estimated outlays are based on historical spending 
patterns for similar NOAA programs.
    S. 1562 would authorize the appropriation of $20 million a 
year over the 2010-2015 period for a NOAA program to research 
and monitor the presence of aerosols, particularly black carbon 
(a light-absorbing aerosol resulting from the burning of fossil 
fuels), in the atmosphere. Of those amounts, NOAA would receive 
$10 million a year to administer the program and $10 million a 
year to fund grants aimed at reducing the impact of aerosols on 
the global climate. Assuming appropriation of the authorized 
amounts, CBO estimates that implementing the program would cost 
$87 million over the 2010-2014 period and $33 million after 
2014.
    S. 1562 also would authorize the appropriation of $2 
million in 2010 for NOAA to fund a National Research Council 
study to assess existing research programs focused on portions 
of the Arctic Ocean off the coast of Alaska. Upon receipt of 
the completed study, the Secretary of Commerce would be 
required to submit a report to the Congress describing the 
council's findings and recommendations, including a research 
plan for those portions of the Arctic Ocean. Based on 
information from the National Research Council, CBO estimates 
that conducting the study would cost about $1 million a year 
over the 2010-2011 period.
    Intergovernmental and private-sector impact: S. 1562 
contains no intergovernmental or private-sector mandates as 
defined in UMRA and would impose no costs on state, local, or 
tribal governments.
    Estimate prepared by: Federal costs: Jeff LaFave; Impact on 
state, local, and tribal governments: Ryan Miller; Impact on 
the private sector: Amy Petz.
    Estimate approved by: Theresa Gullo, Deputy 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

  S. 1562 would authorize an assessment and report of existing 
research programs focused on the United States Arctic Ocean and 
direct NOAA to develop a plan and program to research and 
monitor aerosols. The reported bill would not authorize any new 
regulations and therefore would not subject any individuals or 
businesses to new regulations.

                            ECONOMIC IMPACT

  The bill would authorize the appropriation of $2 million in 
fiscal year 2010 for the United States Arctic Research Study 
and $20 million each year for fiscal years 2010 through 2015 
for NOAA's program to research and monitor aerosols.

                                PRIVACY

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

                               PAPERWORK

  The reported bill would not increase paperwork requirements 
for the private sector.

                   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

TITLE I--ARCTIC OCEAN RESEARCH

Section 101. Short Title.

  This section would provide that Title I may be cited as the 
Arctic Ocean Research and Science Policy Review Act of 2009.

Section 102. Findings.

  This section would provide the findings of the Act.

Section 103. United States Arctic Ocean Defined.

  The section would define the term ``United States Arctic 
Ocean'' for the purposes of the study required in section 104. 
The term means the United States zone of the Chukchi and 
Beaufort seas north of Cape Prince of Wales, Alaska, and 
adjacent marine environments.

Section 104. Study of the United States Arctic Ocean.

  This section would require the Secretary of Commerce to 
request the NRC to conduct a study on the existing research and 
research advisory entities working in the U.S. Arctic Ocean. 
The study would provide a long-range comprehensive plan for 
U.S. Arctic Ocean research and monitoring that coordinates, 
integrates, synthesizes, and prioritizes research and 
monitoring activities. The Committee recognizes that many 
Federal agencies have responsibilities in the Arctic region and 
the Arctic Ocean. This legislation is not intended to revise or 
affect the current authority or responsibilities of any other 
agency. The Committee intends the study to provide a 
coordinated and comprehensive research and monitoring plan to 
enable all agencies to better carry out their missions. As 
such, this section would direct the Secretary to consult with 
the heads of other agencies and departments of the United 
States with appropriate Arctic science expertise or regulatory 
responsibilities in preparing the specifications for the study. 
Lastly, the section requires the Secretary to evaluate the 
study and develop a long-term strategy to implement its 
recommendations for the Department of Commerce and NOAA.

Section 105. Reports to Congress.

  This section would require the Secretary of Commerce to 
submit a report to Congress, within 18 months after the date of 
enactment of the Act, on the study. The report would include 
the findings of the study, the recommendations of the NRC, and 
a prioritized and scalable research plan for the U.S. Arctic 
Ocean.
  The Committee recognizes that many Federal agencies have 
responsibilities in the Arctic region and the Arctic Ocean. 
This legislation is not intended to revise or affect the 
current authority or responsibilities of any other agency. The 
Committee intends the study to provide a coordinated and 
comprehensive research and monitoring plan to enable all 
agencies to better carry out their missions. As such, the 
Committee expects the Secretary to consult with all other 
relevant agencies in preparing the specifications for the 
research plan required by this section.

TITLE II--BLACK CARBON

Section 201. Title.

  This section would provide that Title II may be cited as the 
Black Carbon and Other Aerosols Research Act of 2009.

Section 202. Purposes.

  The section would establish that the purpose of the Act is to 
develop a research plan to measure, monitor, and model black 
carbon and other aerosols, and to establish a black carbon and 
other aerosols monitoring and research program within NOAA.

Section 203. Definitions.

  This section would define the terms: ``Administrator,'' 
``Black Carbon,'' and ``Other Aerosols.''

Section 204. Black Carbon and Other Aerosols Monitoring and Research 
        Plan.

  This section would direct the Administrator of NOAA to 
develop an observation, monitoring, modeling, and research plan 
for black carbon and other aerosols in support of the U.S. 
Global Change Research Plan that includes: (1) an analysis of 
gaps in scientific methods and research and identification of 
Federal research priorities relative to climate change and air 
quality; (2) a framework for modeling; (3) appropriate methods 
that identify the source, anthropogenic versus natural, of the 
aerosols as well as increase understanding of atmospheric 
concentrations and deposited forms; (4) a comparative 
evaluation of the global and regional climate-forcing 
properties of these aerosols and their effect on climate change 
as well as on the loss of sea ice; and (5) observation systems, 
needs, and assets necessary to develop and implement the 
program with NOAA.
  This section would establish an Advisory Panel that would 
assist in the development and implementation of the plan. In 
addition, the Administrator shall submit a report to Congress 
describing the plan no later than 270 days after the enactment 
of this Act.

Section 205. Black Carbon and Other Aerosols Research and Monitoring 
        Program.

  This section would authorize a black carbon and other 
aerosols research program that is consistent with the plan 
required by section 204. This program would include: (1) 
coordinated activities to improve understanding of these 
aerosols and how they impact the climate; (2) strategic 
modeling activities; (3) educational opportunities within the 
scientific community and between the scientific community and 
the public; (4) public outreach; (5) coordination of monitoring 
research activities with other relevant government agencies, 
private entities, and others; and (6) an assessment of the role 
that black carbon and other aerosols have in climate change and 
air quality. In conducting the program, the Administrator may 
execute and perform such contracts, leases, grants, or 
cooperative agreements as may be necessary to carry out the 
purposes of this Act.
  This section would authorize a grant program to provide 
extramural grants for critical research that will improve the 
ability to measure, monitor, model and assess black carbon and 
other aerosols. The Administrator shall consult with the 
Advisory Panel established under section 204(b) and work 
cooperatively with the National Institute of Standards and 
Technology, the National Aeronautics and Space Administration, 
and other Federal agencies to establish criteria for such 
research and projects.
  This section would require the Administrator to coordinate 
with the National Institute of Standards and Technology and 
other relevant Federal agencies when developing the research 
plan under section 204 and the program as described in section 
205(a).
  The U.S. Global Change Research Program coordinates and 
integrates Federal research among thirteen departments and 
agencies on changes in the global environment and their 
societal implications. The Committee recognizes the extensive 
Federal research effort by numerous agencies, including the 
National Aeronautics and Space Administration and the National 
Institute of Standards and Technology, on black carbon and 
other aerosols. As such, the Committee does not intend for the 
provisions in this Act to supersede or alter existing 
authorizations with respect to Earth science research on black 
carbon and other aerosols research. The Committee directs the 
Administrator to coordinate the plan and program required under 
this title with the Office of Science and Technology Policy and 
other relevant Federal agencies.

Section 206. Authorization of Appropriations.

  This section would authorize annual appropriations for each 
of fiscal years 2010 through 2015. The section would authorize 
$10,000,000 for extramural grants under section 205(b), and 
$10,000,000 to NOAA to carry out the provisions of this Act.

                        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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