U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON : 

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39–010 

" ! SENATE 108TH CONGRESS

2d Session 

REPORT

2004

108–400 

Calendar No. 791 

NATIONAL OCEAN EXPLORATION 

PROGRAM ACT 

R E P O R T 

OF THE

COMMITTEE ON COMMERCE, SCIENCE, AND 

TRANSPORTATION 

on 

S. 2280 

OCTOBER 11, 2004.—Ordered to be printed 


congress.#13
(II) 

SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION 

ONE HUNDRED EIGHTH CONGRESS

SECOND SESSION

JOHN MCCAIN, Arizona, Chairman 

TED STEVENS, Alaska 

CONRAD BURNS, Montana 

TRENT LOTT, Mississippi 

KAY BAILEY HUTCHISON, Texas 

OLYMPIA J. SNOWE, Maine 

SAM BROWNBACK, Kansas 

GORDON SMITH, Oregon 

PETER G. FITZGERALD, Illinois 

JOHN ENSIGN, Nevada 

GEORGE ALLEN, Virginia 

JOHN E. SUNUNU, New Hampshire 

ERNEST F. HOLLINGS, South Carolina 

DANIEL K. INOUYE, Hawaii 

JOHN D. ROCKEFELLER IV, West Virginia 

JOHN F. KERRY, Massachusetts 

JOHN B. BREAUX, Louisiana 

BYRON L. DORGAN, North Dakota 

RON WYDEN, Oregon 

BARBARA BOXER, California 

BILL NELSON, Florida 

MARIA CANTWELL, Washington 

FRANK LAUTENBERG, New Jersey 

JEANNE BUMPUS, Staff Director and General Counsel 

ROB FREEMAN, Deputy Staff Director 

ROBERT W. CHAMBERLIN, Chief Counsel 

KEVIN D. KAYES, Democratic Staff Director and Chief Counsel 

00–000 

Calendar No. 791 

108TH CONGRESS REPORT " ! SENATE 2d Session 108–400 

NATIONAL OCEAN EXPLORATION PROGRAM ACT 

OCTOBER 11, 2004.—Ordered to be printed 

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

Transportation, submitted the following 

R E P O R T 

[To accompany S. 2280] 

The Committee on Commerce, Science, and Transportation, to 

which was referred the bill (S. 2280) ‘‘A Bill To establish a coordinated national ocean exploration program within the National Oceanic and Atmospheric Administration’’, having considered the 

same, reports favorably thereon without amendment without 

amendments and recommends that the bill do pass. 

PURPOSE OF THE BILL

The purpose of S. 2280, 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 2005 through 2016. The program’s main purpose would be to 

explore the oceans to ‘‘benefit, inform, and inspire’’ the American 

people, while facilitating the discovery of new living and non-living 

resources, documenting shipwrecks and submerged archaeological 

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, only 5 percent of the ocean floor has been explored to date and scientific understanding of undersea environments remains cursory. Current 

ocean exploration excursions continue to probe uncharted territory 

and locate and identify new species and resources, ranging from 

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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 Federal government’s narrow focus and limited 

financial and other support for ocean exploration. 

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 among the general public. The U.S. Commission on 

Ocean Policy’s (the Ocean Commission) final report to Congress, released on September 20, 2004, reiterated these needs. Within its 

report, the Ocean Commission highlighted the need for a strong, 

comprehensive ocean exploration program, citing the persistent call 

for a national program from various commissions and expert panels 

since the 1970s. 

For example, the Report of the Ocean Commission notes that in 

the 1970s, as the result of recommendations in the 1969 Report of 

the Stratton Commission, the United States led the International 

Decade of Ocean Exploration. In addition, in the 1980s and 1990s, 

NOAA and the United States Geological Survey (USGS) conducted 

a long-term exploration of the United States 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 Department of Commerce with recommending a national strategy for launching a new 

era of ocean exploration. To develop this strategy, 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 (not including 

the cost of providing a dedicated exploration vessel and undersea 

vehicle). In response, NOAA established the Office of Ocean Exploration. Funding for this office started at $4 million in FY 2001, and 

by FY 2004 it was funded at $13,100,000. NOAA’s ocean exploration program continues to be constrained by a narrow agency 

focus and limited discretionary funding. 

Overall, the Ocean Commission considers the Federal government’s past efforts on ocean exploration to be 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 Navy serving supporting roles. It recommends an 

additional $30 million in the first year of implementation, rising to 

$110 million in annual ongoing costs (including infrastructure 

costs). 

LEGISLATIVE HISTORY

S. 2280 was introduced in the Senate on April 5, 2004, by Senator Stevens and referred to the Senate Committee on Commerce, 

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Science, and Transportation. It is cosponsored by Senators Hollings, Inouye, and Dodd. On July 20, 2004, the bill was considered 

by the Committee in an open executive session. The Committee, 

without objection, ordered S. 2280 to be reported without amendment. 

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: 

U.S. CONGRESS, CONGRESSIONAL BUDGET OFFICE, 

Washington, DC, August 9, 2004. 

Hon. JOHN MCCAIN, 

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. 2280, the National Ocean 

Exploration Program Act. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Deborah Reis. 

Sincerely, 

ELIZABETH M. ROBINSON

(For Douglas Holtz-Eakin, Director). 

Enclosure. 

S. 2280—National Oceanic and Atmospheric Administration 

Summary: S. 2280 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 these activities, the bill would 

authorize the appropriation of $45 million annually for fiscal years 

2005 through 2010 and of $55 million annually for fiscal years 

2011 through 2016. 

Assuming appropriation of the authorized amounts, CBO estimates that implementing S. 2280 would cost about $15 million in 

fiscal year 2005 and $180 million over the 2005–2009 period. We 

estimate that $365 million would be spent after 2009, including 

$320 million authorized to be appropriated between 2010 and 2016. 

Enacting S. 2280 would have no impact on revenues or direct 

spending. 

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S. 2280 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. 2280 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). 

By fiscal year, in millions of dollars— 

2005 2006 2007 2008 2009 

CHANGES IN SPENDING SUBJECT TO APPROPRIATION1

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

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

1 NOAA’s National Oceans Office received appropriations of $623 million for oceanic research and science activities in 2004, many of which are similar to the program that would be authorized by this bill. 

Intergovernmental and private-sector impact: S. 2280 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. 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: Amina Masood. 

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 2005 through 2016. It does not authorize any 

new regulations and therefore would not subject any individuals or 

businesses to new regulations. 

ECONOMIC IMPACT

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

2005 through 2010, and $55,000,000 for each of fiscal years 2011 

through 2016 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 would not have any adverse impact on the personal privacy of individuals. 

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PAPERWORK

The reported bill would 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. 

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/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, United States Geological 

Survey, the 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 would authorize the transfer of funds between Federal 

agencies, provided those funds are specifically appropriated for this 

program. 

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Section 7. Authorization of Appropriations 

Section 7 would authorize appropriations to NOAA for this program of $45,000,000 for each of fiscal years 2005 through 2010, and 

$55,000,000 for each of fiscal years 2011 through 2016. 

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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