II 

117TH CONGRESS 

1ST SESSION S. 3245 

To establish the Interagency Working Group on Coastal Blue Carbon, and 

for other purposes. 

IN THE SENATE OF THE UNITED STATES 

NOVEMBER 18, 2021 

Ms. MURKOWSKI (for herself and Mr. WHITEHOUSE) introduced the following 

bill; which was read twice and referred to the Committee on Commerce, 

Science, and Transportation 

A BILL 

To establish the Interagency Working Group on Coastal Blue 

Carbon, and for other purposes. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the ‘‘Blue Carbon for Our 

5 Planet Act’’. 

6 SEC. 2. DEFINITIONS. 

7 In this Act: 

8 (1) ADMINISTRATOR.—The term ‘‘Adminis9 trator’’ means the Under Secretary of Commerce for 

10 Oceans and Atmosphere in the Under Secretary’s 


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1 capacity as the Administrator of the National Oce2 anic and Atmospheric Administration. 

3 (2) COASTAL BLUE CARBON ECOSYSTEMS.— 

4 (A) IN GENERAL.—The term ‘‘coastal blue 

5 carbon ecosystems’’ means vegetated coastal 

6 habitats, including mangroves, tidal marshes, 

7 seagrasses, kelp forests, and other tidal, fresh8 water, or salt-water wetlands, that have the 

9 ability to sequester carbon from the atmos10 phere, accumulate carbon in biomass for years 

11 to decades, and store carbon in soils for cen12 turies to millennia. 

13 (B) INCLUSIONS.—The term ‘‘coastal blue 

14 carbon ecosystems’’ includes autochthonous car15 bon and allochthonous carbon. 

16 (3) COASTAL CARBON DATA CLEARINGHOUSE.— 

17 The term ‘‘Coastal Carbon Data Clearinghouse’’ 

18 means the Coastal Carbon Data Clearinghouse oper19 ated by the Smithsonian Environmental Research 

20 Center. 

21 (4) INTERAGENCY WORKING GROUP.—The term 

22 ‘‘Interagency Working Group’’ means the Inter23 agency Working Group on Coastal Blue Carbon es24 tablished under section 3(a). 


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1 (5) STATE.—The term ‘‘State’’ means each 

2 State of the United States, the District of Columbia, 

3 the Commonwealth of Puerto Rico, American 

4 Samoa, Guam, the Commonwealth of the Northern 

5 Mariana Islands, the Virgin Islands of the United 

6 States, and any other territory or possession of the 

7 United States. 

8 SEC. 3. INTERAGENCY WORKING GROUP ON COASTAL BLUE 

9 CARBON. 

10 (a) ESTABLISHMENT.—The Subcommittee on Ocean 

11 Science and Technology of the National Science and Tech12 nology Council shall establish an interagency working 

13 group, to be known as the ‘‘Interagency Working Group 

14 on Coastal Blue Carbon’’. 

15 (b) MEMBERSHIP.—The Interagency Working Group 

16 shall be comprised of senior representatives from— 

17 (1) the National Oceanic and Atmospheric Ad18 ministration; 

19 (2) the Environmental Protection Agency; 

20 (3) the National Science Foundation; 

21 (4) the National Aeronautics and Space Admin22 istration; 

23 (5) the United States Geological Survey; 

24 (6) the United States Fish and Wildlife Service; 

25 (7) the National Park Service; 


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1 (8) the Bureau of Indian Affairs; 

2 (9) the Smithsonian Institution; 

3 (10) the Army Corps of Engineers; 

4 (11) the Department of Agriculture; 

5 (12) the Department of Energy; 

6 (13) the Department of Defense; 

7 (14) the Department of State; 

8 (15) the Department of Transportation; 

9 (16) the Federal Emergency Management 

10 Agency; and 

11 (17) the Council on Environmental Quality. 

12 (c) CHAIRPERSON.—The Interagency Working Group 

13 shall be chaired by the Administrator. 

14 (d) RESPONSIBILITIES.—The Interagency Working 

15 Group shall— 

16 (1) oversee the development, updates, and 

17 maintenance of a national map and inventory of 

18 coastal blue carbon ecosystems, including habitat 

19 types, with a regional focus in analysis that is usable 

20 for local-level conservation, planning, and restora21 tion; 

22 (2) develop a strategic assessment of the bio23 physical, chemical, social, statutory, regulatory, and 

24 economic impediments to conservation and restora25 tion of coastal blue carbon ecosystems, including the 


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1 vulnerability of coastal blue carbon ecosystems to cli2 mate impacts, such as sea-level rise and ocean and 

3 coastal acidification, and other environmental and 

4 human stressors; 

5 (3) develop a national strategy for foundational 

6 science necessary to study, synthesize, and evaluate 

7 the effects of climate change and environmental and 

8 human stressors on sequestration rates and capabili9 ties of coastal blue carbon ecosystems conservation, 

10 with input from the National Academies of Sciences, 

11 Engineering, and Medicine; 

12 (4) establish national conservation and restora13 tion priorities for coastal blue carbon ecosystems, in14 cluding an assessment of Federal funding being used 

15 for conservation and restoration efforts; 

16 (5) ensure the continuity, use, and interoper17 ability of data assets, including data assets available 

18 through the Coastal Carbon Data Clearinghouse; 

19 and 

20 (6) assess legal authorities in effect as of the 

21 date of the enactment of this Act to conserve and re22 store coastal blue carbon ecosystems. 

23 (e) SUBMISSIONS TO CONGRESS.— 

24 (1) REPORT.—Not later than 1 year after the 

25 date of the enactment of this Act, the Interagency 


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1 Working Group shall submit to the Committee on 

2 Commerce, Science, and Transportation of the Sen3 ate, the Committee on Science, Space, and Tech4 nology of the House of Representatives, and the 

5 Committee on Natural Resources of the House of 

6 Representatives a report containing the following: 

7 (A) A summary of federally funded re8 search, monitoring, conservation, and restora9 tion activities relating to coastal blue carbon 

10 ecosystems, including— 

11 (i) the budget for each such activity; 

12 and 

13 (ii) a description of the progress made 

14 by each such activity in advancing the na15 tional priorities identified under section 

16 5(a)(3)(A). 

17 (B) An assessment of biophysical, chem18 ical, social, statutory, regulatory, and economic 

19 impediments to conservation and restoration of 

20 coastal blue carbon ecosystems, including the 

21 vulnerability of coastal blue carbon ecosystems 

22 to climate impacts, such as sea-level rise and 

23 ocean and coastal acidification, and other envi24 ronmental and human stressors. 

25 (2) STRATEGIC PLAN.— 


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1 (A) IN GENERAL.—The Interagency Work2 ing Group shall create a strategic plan for Fed3 eral investments in basic research, development, 

4 demonstration, long-term monitoring and stew5 ardship, and deployment of coastal blue carbon 

6 ecosystem projects for the 5-year period begin7 ning on the date on which the first fiscal year 

8 after the date on which the report is submitted 

9 under paragraph (1) begins. 

10 (B) ELEMENTS.—The plan required by 

11 subparagraph (A) shall— 

12 (i) include an assessment of the use of 

13 Federal programs existing as of the date of 

14 the enactment of this Act to conserve and 

15 restore coastal blue carbon ecosystems; and 

16 (ii) identify any additional authorities 

17 or programs that may be needed to con18 serve and restore such ecosystems. 

19 (C) TIMING.—The Interagency Working 

20 Group shall— 

21 (i) on a date that is not later than 1 

22 year after the date of the enactment of this 

23 Act and not earlier than the date on which 

24 the report required by paragraph (1) is 

25 submitted, submit to the Committee on 


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1 Commerce, Science, and Transportation of 

2 the Senate, the Committee on Science, 

3 Space, and Technology of the House of 

4 Representatives, and the Committee on 

5 Natural Resources of the House of Rep6 resentatives the strategic plan required by 

7 subparagraph (A); and 

8 (ii) submit a revised version of such 

9 plan not less frequently than once every 5 

10 years thereafter. 

11 (D) PUBLICATION AND PUBLIC COM12 MENT.—Not later than 90 days before the date 

13 on which the strategic plan or any revised 

14 version of such plan is submitted under sub15 paragraph (C), the Interagency Working Group 

16 shall— 

17 (i) publish such plan in the Federal 

18 Register; and 

19 (ii) provide an opportunity for submis20 sion of public comments for a period of not 

21 less than 60 days. 

22 SEC. 4. NATIONAL MAP AND INVENTORY OF COASTAL BLUE 

23 CARBON ECOSYSTEMS. 

24 (a) IN GENERAL.—The Interagency Working Group 

25 shall produce, update, and maintain a national-level map 


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1 and inventory of coastal blue carbon ecosystems, includ2 ing— 

3 (1) the types of habitats and species in such 

4 ecosystems; 

5 (2) the condition of such habitats, including 

6 whether a habitat is degraded, drained, eutrophic, or 

7 tidally restricted; 

8 (3) the type of public or private ownership and 

9 any protected status of such ecosystems; 

10 (4) the size of such ecosystems; 

11 (5) the salinity boundaries of such ecosystems; 

12 (6) the tidal boundaries of such ecosystems; 

13 (7) an assessment of carbon sequestration po14 tential, methane production, and net greenhouse gas 

15 reductions with respect to such ecosystems, includ16 ing consideration of— 

17 (A) quantification; 

18 (B) verifiability; 

19 (C) comparison to a historical baseline as 

20 available; and 

21 (D) permanence of those benefits; 

22 (8) an assessment of co-benefits of ecosystem 

23 and carbon sequestration; 

24 (9) the potential for landward migration as a 

25 result of sea level rise; 


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1 (10) any upstream restrictions detrimental to 

2 the watershed process and conditions such as dams, 

3 dikes, levees, and other water management practices; 

4 (11) the conversion of such ecosystems to other 

5 land uses and the cause of such conversion; and 

6 (12) a depiction of the effects of climate 

7 change, including sea level rise, environmental 

8 stressors, and human stressors on the sequestration 

9 rate, carbon storage, and potential of such eco10 systems. 

11 (b) DATA INCORPORATION; ENGAGEMENT.—In car12 rying out subsection (a), the Administrator shall— 

13 (1) incorporate, to the extent practicable, exist14 ing data, as determined on the date of the enact15 ment of this Act, collected through federally funded 

16 research by a Federal agency, State agency, Tribe, 

17 or local agency and peer-reviewed published works, 

18 including data collected from— 

19 (A) the Coastal Change Analysis Program 

20 of the National Oceanic and Atmospheric Ad21 ministration; 

22 (B) the National Wetlands Inventory of 

23 the United States Fish and Wildlife Service; 

24 (C) the LandCarbon program of the 

25 United States Geological Survey; 


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1 (D) the LiDAR information coordination 

2 and knowledge program of the Federal Emer3 gency Management Agency; 

4 (E) the Biological and Environmental Re5 search Program of the Department of Energy; 

6 and 

7 (F) the National Coastal Blue Carbon As8 sessment of the Department of Agriculture; and 

9 (2) engage regional experts, State agencies, 

10 Tribes, and additional data and information re11 sources in order to accurately account for regional 

12 differences in coastal blue carbon ecosystems. 

13 (c) USE OF MAP AND INVENTORY.—The Interagency 

14 Working Group shall use the national map and inventory 

15 produced under subsection (a)— 

16 (1) to assess the carbon sequestration potential 

17 of different coastal blue carbon ecosystems and ac18 count for any regional differences; 

19 (2) to assess and quantify emissions from de20 graded and destroyed coastal blue carbon eco21 systems; 

22 (3) to develop regional assessments in partner23 ship with, or to provide technical assistance to— 

24 (A) regional, State, Tribal, and local gov25 ernment agencies; and 


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1 (B) regional information coordination enti2 ties (as defined in section 12303(6) of the Inte3 grated Coastal and Ocean Observation System 

4 Act of 2009 (33 U.S.C. 3602)); 

5 (4) to assess degraded coastal blue carbon eco6 systems and the potential for restoration of such 

7 ecosystems, including developing scenario modeling 

8 to identify vulnerable land areas and living shore9 lines where management, conservation, and restora10 tion efforts should be focused; 

11 (5) to produce predictions relating to coastal 

12 blue carbon ecosystems and carbon sequestration 

13 rates in the context of climate change, environmental 

14 stressors, and human stressors; and 

15 (6) to inform the creation by the Administrator 

16 of the Environmental Protection Agency of the an17 nual Inventory of U.S. Greenhouse Gas Emissions 

18 and Sinks. 

19 SEC. 5. RESTORATION AND CONSERVATION OF EXISTING 

20 COASTAL BLUE CARBON ECOSYSTEMS. 

21 (a) IN GENERAL.—The Administrator shall— 

22 (1) lead the Interagency Working Group in im23 plementing the strategic plan under section 3(e)(2); 

24 (2) coordinate monitoring and research efforts 

25 among Federal agencies in cooperation with State, 


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1 Tribal, and local governments, academic institutions, 

2 international partners, and nongovernmental organi3 zations; 

4 (3) in coordination with the Interagency Work5 ing Group, and as informed by the report under sec6 tion 3(e)(1), identify— 

7 (A) national conservation and restoration 

8 priorities for coastal blue carbon ecosystems 

9 that would produce the highest rate of carbon 

10 sequestration and greatest ecosystem benefits, 

11 such as flood protection, soil and beach reten12 tion, erosion reduction, biodiversity, water puri13 fication, and nutrient cycling, in the context of 

14 other environmental stressors and climate 

15 change; and 

16 (B) ways to improve coordination and to 

17 prevent unnecessary duplication of effort among 

18 Federal agencies and departments with respect 

19 to research on coastal blue carbon ecosystems 

20 through existing and new coastal management 

21 networks; and 

22 (4) in coordination with State, Tribal, and local 

23 governments and coastal stakeholders, develop inte24 grated pilot programs to restore degraded coastal 


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1 blue carbon ecosystems in accordance with sub2 section (b). 

3 (b) INTEGRATED FEDERAL PILOT PROGRAMS TO

4 RESTORE DEGRADED COASTAL BLUE CARBON ECO5 SYSTEMS.— 

6 (1) IN GENERAL.—In carrying out subsection 

7 (a)(4), the Administrator shall establish 1 or more 

8 integrated Federal pilot programs that— 

9 (A) further develop— 

10 (i) best management practices, includ11 ing design criteria and performance func12 tions for restoration of coastal blue carbon 

13 ecosystems; 

14 (ii) nature-based adaptation strate15 gies; 

16 (iii) restoration areas that intersect 

17 with built environments as green-gray in18 frastructure projects; 

19 (iv) management practices for land20 ward progression, migration, or loss of 

21 coastal blue carbon ecosystems; 

22 (v) best management practices to ac23 count for latitudinal biogeographic factors; 

24 and 


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1 (vi) best management practices for 

2 restoration of— 

3 (I) hypersaline coastal eco4 systems; and 

5 (II) estuarine ecosystems; and 

6 (B) identify potential barriers to restora7 tion management efforts. 

8 (2) LOCATIONS.—The Administrator shall en9 sure that pilot programs under paragraph (1) cover 

10 geographically, socioeconomically, and ecologically 

11 diverse locations with— 

12 (A) significant ecological, economic, and 

13 social benefits, such as flood protection, soil and 

14 beach retention, erosion reduction, biodiversity, 

15 water purification, and nutrient cycling to re16 duce hypoxic conditions; and 

17 (B) maximum potential for greenhouse gas 

18 emission reduction, taking into account— 

19 (i) quantification; 

20 (ii) verifiability; 

21 (iii) additionality, as compared to an 

22 appropriate historical baseline determined 

23 by the Interagency Working Group; and 

24 (iv) permanence of those benefits. 


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1 (3) APPLICATION REVIEW.—The Administrator 

2 shall— 

3 (A) establish a procedure for reviewing ap4 plications for pilot programs under paragraph 

5 (1); 

6 (B) encourage applications from minority 

7 serving institutions; and 

8 (C) consider proposals from institutions 

9 that may not have adequate resources. 

10 (4) COMMUNICATION.—The Administrator shall 

11 ensure, through consultation with the Interagency 

12 Working Group, that the goals and metrics for pilot 

13 programs under paragraph (1) are communicated to 

14 the appropriate State, local, and Tribal govern15 ments, coastal stakeholders, non-Federal resource 

16 managers, academia, and the general public. 

17 (5) COORDINATION.—The Administrator shall 

18 coordinate with— 

19 (A) relevant Federal agencies and depart20 ments specified under section 3(b) to prevent 

21 unnecessary duplication of effort among such 

22 agencies and departments with respect to res23 toration programs; and 

24 (B) relevant State, Tribal, and local gov25 ernment entities. 


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1 (6) PRIORITY.—In carrying out pilot programs 

2 under paragraph (1), the Administrator shall give 

3 priority to proposed eligible restoration activities 

4 that would— 

5 (A) result in long-term sequestration of 

6 carbon stored in coastal and marine environ7 ments; 

8 (B) conserve key habitats for fish, wildlife, 

9 and the maintenance of biodiversity; 

10 (C) provide coastal protection from storms, 

11 flooding, and land-based pollution; 

12 (D) restore optimal salinities and chloro13 phyll levels in estuarine and coastal environ14 ments or lead to other improvements to water 

15 quality; and 

16 (E) conserve coastal resources of national, 

17 historical, and cultural significance. 

18 (7) NON-FEDERAL COST SHARE.—The Adminis19 trator may accept, but shall not give priority to, of20 fers to share the cost of a project under a pilot pro21 gram under paragraph (1) from State, Tribal, local, 

22 and nongovernmental applicants. 

23 (8) REQUIREMENT.—Any project performed 

24 under a pilot program under paragraph (1) shall be 


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1 conducted within the territorial boundaries of the 

2 United States. 

3 SEC. 6. COASTAL CARBON DATA CLEARINGHOUSE. 

4 (a) DEFINITION OF SECRETARY.—In this section, the 

5 term ‘‘Secretary’’ means the Secretary of the Smithsonian 

6 Institution. 

7 (b) IN GENERAL.—The Secretary, in coordination 

8 with the Administrator and members of the Interagency 

9 Working Group, shall provide for the long-term steward10 ship of, and access to, data relating to coastal blue carbon 

11 ecosystems and national mapping, by supporting the 

12 maintenance of the Coastal Carbon Data Clearinghouse. 

13 (c) COASTAL CARBON DATA CLEARINGHOUSE DU14 TIES.—The Secretary, in coordination with the Adminis15 trator and members of the Interagency Working Group, 

16 shall, through the Coastal Carbon Data Clearinghouse, 

17 process, store, archive, provide access to, and incorporate 

18 (to the extent practicable) all data relating to coastal car19 bon collected through federally funded research by a Fed20 eral agency, State, Tribe, or local agency, an academic in21 stitution, or another relevant entity. 

22 (d) GLOBAL AND NATIONAL DATA ASSETS.—The 

23 Secretary, in coordination with the Administrator and 

24 members of the Interagency Working Group, shall ensure 

25 that existing global and national data assets, as deterVerDate Sep 11 2014 03:15 Nov 20, 2021 Jkt 029200 PO 00000 Frm 00018 Fmt 6652 Sfmt 6201 E:\BILLS\S3245.IS S3245

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1 mined on the date of the enactment of this Act, are incor2 porated into the Coastal Carbon Data Clearinghouse, to 

3 the greatest extent practicable. 

4 (e) ESTABLISHMENT OF STANDARDS, PROTOCOLS, 

5 AND PROCEDURE.—The Secretary, in coordination with 

6 the Administrator and members of the Interagency Work7 ing Group, shall establish— 

8 (1) standards, protocols, and procedures for the 

9 processing, storing, and archiving of, and providing 

10 access to, data in the Coastal Carbon Data Clearing11 house; and 

12 (2) best practices for sharing such data with 

13 State, local, and Tribal governments, coastal stake14 holders, non-Federal resource managers, and aca15 demia. 

16 (f) DISSEMINATION; DIGITAL TOOLS AND RE17 SOURCES.— 

18 (1) DISSEMINATION.—The Administrator shall 

19 work to disseminate the data available through the 

20 Coastal Carbon Data Clearinghouse to the greatest 

21 extent practicable. 

22 (2) DIGITAL TOOLS AND RESOURCES.—The 

23 Secretary, in coordination with the Administrator 

24 and members of the Interagency Working Group, 

25 shall develop digital tools and resources to support 


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1 the public use of the Coastal Carbon Data Clearing2 house. 

3 SEC. 7. NATIONAL ACADEMY OF SCIENCES ASSESSMENTS 

4 OF CARBON DIOXIDE STORAGE IN DEEP 

5 SEAFLOOR ENVIRONMENTS AND OF COASTAL 

6 CARBON MARKETS. 

7 Not later than 90 days after the date of the enact8 ment of this Act, the Administrator shall seek to enter 

9 into an agreement with the National Academy of Sciences 

10 to conduct— 

11 (1) a comprehensive assessment of— 

12 (A) the long-term effects of containment of 

13 carbon dioxide in a deep seafloor environment 

14 on marine ecosystems; 

15 (B) the socioeconomic effects of such con16 tainment on existing ocean users and commu17 nities; and 

18 (C) the integrity of existing storage tech19 nologies, as determined on the date of the en20 actment of this Act; 

21 (2) a comprehensive assessment of pathways, 

22 methods, and technologies able to directly remove 

23 carbon dioxide from the oceans by the removal of 

24 dissolved carbon dioxide from seawater through engi25 neered or inorganic processes, including filters, 


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1 membranes, phase change systems, or other techno2 logical pathways; and 

3 (3) a comprehensive assessment of the viability 

4 of using coastal macroalgae cultivation and sustain5 able coastal wetlands management and restoration 

6 for carbon sequestration, which shall consider— 

7 (A) environmental and socioeconomic ef8 fects on coastal communities; 

9 (B) durability and cost per ton of carbon 

10 dioxide sequestered using coastal macroalgae 

11 cultivation and sustainable coastal wetlands 

12 management in a variety of regions of the 

13 United States, including Alaska, the Gulf 

14 Coast, the Mid-Atlantic, and the Pacific North15 west; 

16 (C) research, data, resource management, 

17 monitoring, reporting, lifecycle assessment, and 

18 verification improvements necessary to develop 

19 a carbon market around coastal macroalgae cul20 tivation and sustainable coastal wetlands man21 agement or restoration; and 

22 (D) relevant successes and failures of car23 bon markets in agriculture, forestry, and wet24 lands and how such successes and failures 

25 might apply to a future coastal carbon market. 


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1 SEC. 8. RULE OF CONSTRUCTION. 

2 Nothing in this Act shall be construed as providing 

3 new authority— 

4 (1) to expand Federal land acquisition in pur5 suit of the goal described in section 216 of Executive 

6 Order (86 Fed. Reg. 7627; relating to tackling the 

7 climate crisis at home and abroad); or 

8 (2) to conserve or protect Federal lands or 

9 waters without prior written approval from the Gov10 ernor of an affected State. 

11 SEC. 9. AUTHORIZATION OF APPROPRIATIONS. 

12 There is authorized to be appropriated to the Admin13 istrator to carry out this Act $15,000,000 for each of fis14 cal years 2022 through 2026. 

Æ 


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