[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
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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
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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.