[Senate Report 108-348]
[From the U.S. Government Publishing Office]
108th Congress
2d Session SENATE Report
108-348
_______________________________________________________________________
Calendar No. 702
PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION
OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL
INFORMATION
__________
R E P O R T
of the
COMMITTEE ON GOVERNMENTAL AFFAIRS UNITED STATES SENATE
to accompany
S. 1230
PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION
OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL
INFORMATION
September 20, 2004.--Ordered to be printed
COMMITTEE ON GOVERNMENTAL AFFAIRS
SUSAN M. COLLINS, Maine, Chairman
TED STEVENS, Alaska JOSEPH I. LIEBERMAN, Connecticut
GEORGE V. VOINOVICH, Ohio CARL LEVIN, Michigan
NORM COLEMAN, Minnesota DANIEL K. AKAKA, Hawaii
ARLEN SPECTER, Pennsylvania RICHARD J. DURBIN, Illinois
ROBERT F. BENNETT, Utah THOMAS R. CARPER, Delaware
PETER G. FITZGERALD, Illinois MARK DAYTON, Minnesota
JOHN E. SUNUNU, New Hampshire FRANK LAUTENBERG, New Jersey
RICHARD C. SHELBY, Alabama MARK PRYOR, Arkansas
Michael D. Bopp, Staff Director and Chief Counsel
Bonnie Heald, Professional Staff Member
Joyce A. Rechtschaffen, Minority Staff Director and Counsel
Kevin J. Landy, Minority Counsel
Deborah Parkinson, Minority Professional Staff,
Financial Management, the Budget, and International Security
Subcommittee
Amy B. Newhouse, Chief Clerk
Calendar No. 702
108th Congress
SENATE
Report
2d Session 108-348
======================================================================
PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION
OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL
INFORMATION
_______
September 20, 2004.--Ordered to be printed
_______
Ms. Collins, from the Committee on Governmental Affairs, submitted the
following
R E P O R T
[To accompany S. 1230]
The Committee on Governmental Affairs, to whom was referred
the bill (S. 1230) to provide for additional responsibilities
for the Chief Information Officer of the Department of Homeland
Security relating to geospatial information, having considered
the same reports favorably thereon with an amendment and
recommends that the bill, as amended, do pass.
CONTENTS
Page
I. Purpose and Summary..............................................1
II. Background.......................................................1
III. Legislative History..............................................3
IV. Section-by-Section Analysis......................................3
V. Estimated Cost of Legislation....................................4
VI. Evaluation of Regulatory Impact..................................5
VII. Changes in Existing Law..........................................6
I. PURPOSE AND SUMMARY
The Senate Governmental Affairs Committee (the
``Committee'') approved S. 1230, the Homeland Security
Geographic Information Act, on July 21, 2004. This legislation
would create an Office of Geospatial Management under the Chief
Information Officer in the Department of Homeland Security (the
``Department'' or ``DHS'') to coordinate the geospatial
information needs of the Department.
II. BACKGROUND
Geospatial information, which includes maps, charts, remote
sensing data and images, and aerial photographic images, is an
integral tool used by most government agencies. According to
the Government Accountability Office (``GAO''), approximately
80 percent of all government information has a geospatial data
component.\1\ Despite the prevalence of geospatial information,
there is little planning or coordination of geospatial
activities or procurement at the Federal level. According to a
2003 study by Cary and Associates, a geotechnology consulting
firm, the Federal Government procures $5 billion worth of
geospatial goods and technologies per year.\2\ This figure does
not include the amount being spent by State and local agencies,
which some experts estimate is two to three times that of the
Federal Government.
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\1\ Geographic Information Systems: Challenges to Effective Data
Sharing, Government Accountability Office, GAO-03-874T, June 10, 2003.
\2\ U.S. Federal Procurement of Geotechnology 2000-2002, Cary and
Associates, October 2003.
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In recent testimony before the House Committee on
Government Reform, Linda Koontz, Director, Information
Management Issues, GAO, stated that while the Office of
Management and Budget has issued requirements regarding
geospatial coordination, Federal agencies have not consistently
complied with them.\3\ Ms. Koontz also testified that
approximately 50 percent of the Federal government's geospatial
data investment is duplicative.\4\ For example, the Federal
Emergency Management Agency, which is part of the Department of
Homeland Security, the United States Geological Survey, and the
Department of Defense all collect and maintain separate
elevation data sets.\5\
---------------------------------------------------------------------------
\3\ Geospatial Information: Better Coordination and Oversight Could
Help Reduce Duplicative Investments, Government Accountability Office,
GAO-04-824T, June 23, 2004
\4\ Ibid.
\5\ Ibid.
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Geospatial information is a crucial component of the
Department's many missions. According to DHS, geospatial
information is used for intelligence, law enforcement, first
response, disaster recovery, and agency management. Geospatial
technologies provide data that create the maps and charts that
can help prevent a disaster from occurring or lessen the impact
of an unforeseeable event by equipping first responders with
up-to-date information. In the event of a terrorist chemical
attack or accidental chemical release, knowing which way a
contaminated plume will travel can save lives. Similarly, the
damage of a natural disaster, such as a wildfire, can be
lessened by maps that help predict which areas will be in the
path of the blaze. Geospatial information also aids everyday
homeland security activities such as border control by enabling
Border and Transportation Security officials to monitor border
activity in remote areas through aerial photography.
When the Department was created in 2003 it brought together
components from 22 separate agencies, each of which managed its
geospatial needs independently. In the past year, the
Department has encountered significant difficulties integrating
personnel, financial systems, and computer systems from the
legacy agencies. Geospatial information has been no different.
In June 2003, the DHS Chief Information Officer (``CIO'')
created the position of Geospatial Information Officer
(``GIO'') to coordinate geospatial policy within the office of
the CIO. The GIO was tasked with monitoring geospatial policy
and providing recommendations to the five directorates and the
Office of the Secretary, but does not have the statutory
authority to coordinate the Department's geospatial policy and
activities.
To empower the Office of the CIO with the necessary
authority to coordinate the geospatial activities of the
Department, S. 1230 would create an Office of
GeospatialManagement (``GMO'') in the Office of the CIO to be run by
the GIO. S. 1230 gives the GIO the responsibility for ensuring that the
geospatial needs of the Department are met and is intended to elicit
cooperation from all the directorates of the Department to achieve this
goal. The GMO can only have its intended effect if its authority is
respected by the entire Department.
III. LEGISLATIVE HISTORY
S. 1230 was introduced on June 11, 2003, by Senator Allard
and was referred to the Committee on Governmental Affairs. On
July 21, 2004, the Committee considered S. 1230 and ordered the
bill as amended favorably reported by voice vote. Members
present were Collins, Lieberman, Voinovich, Specter,
Fitzgerald, Akaka, Durbin, Carper, and Lautenberg.
On May 6, 2004, Senator Akaka introduced S. 2390, the
Homeland Security Geospatial Information Act of 2004, to create
a DHS Office of Geospatial Management in the Office of the
Chief Information Officer and for other purposes. Senator Akaka
offered an amendment to S. 1230 that made the following
changes: (1) created the Office of Geospatial Management; (2)
removed language encouraging the use of private sector data;
(3) replaced the term ``geospatial information'' with
``geographic information'' to be consistent with the E-
Government Act; and (4) made other technical changes to be
consistent with the E-Government Act of 2002 and the
President's E-Government Initiative relating to geospatial
information. The amendment was cosponsored by Senators Collins
and Lieberman.
H.R. 3367, a companion bill to S. 1230, was introduced in
the House on October 21, 2003, by Representative Sessions and
was referred to the Committee on Government Reform and the
Committee on Science.
IV. SECTION-BY-SECTION ANALYSIS
Section 1. Short title
This Act may be cited as the ``Homeland Security Geographic
Information Act of 2004.''
Section 2. Findings
This section explains the importance of geospatial
information to homeland security activities and the
inadequacies of the current state of geospatial information
preparedness in the Department and the country as a whole.
Section 3. Homeland security geographic information
This section creates an Office of Geospatial Management in
the Office of the Chief Information Officer to be administered
by the Geospatial Information Officer. The Geospatial
Information Officer is instructed to assist the Chief
Information Officer with the following geospatial coordination
functions: (1) ensuring that the Department has the necessary
geospatial information for critical infrastructure protection;
(2) coordinating and leading the geospatial activities of the
Department; (3) ensuring coordination and interoperability
among users of geospatial information within the Department to
prevent unnecessary duplication.
This section tasks the Chief Information Officer, with
assistance from the Geospatial Information Officer, with the
following responsibilities: (1) coordinating the geographic
information needs and activities of the Department; (2)
implementing interoperability standards established by the
Federal Geographic Data Committee (``FGDC'') pertaining to
homeland security geospatial information, (3) coordinating with
the FGDC including providing counsel to the FGDC on homeland
security related issues; and (4) making recommendations to the
Secretary and the Office of State and Local Coordination and
Preparedness on grants to fund the creation of geospatial data
and executing information sharing agreements between the
Department and other levels of government.
V. ESTIMATED COST OF LEGISLATION
September 3, 2004.
Hon. Susan M. Collins,
Chairman, Committee on Governmental Affairs,
U.S. Senate, Washington, DC.
Dear Madam Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for S. 1230, the Homeland
Security Geographic Information Act of 2004.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Matthew
Pickford.
Sincerely,
Douglas Holtz-Eakin,
Director.
Enclosure.
S. 1230--Homeland Security Geographic Information Act of 2004
S. 1230 would amend the Homeland Security Act to require
the Chief Information Officer (CIO) at the Department of
Homeland Security (DHS) to establish an Office of Geospatial
Management to oversee the efficient use and coordination of the
department's geographic information. In addition, the CIO's
office would be responsible for leading and coordinating the
geographic needs of the department's emergency planning and
critical infrastructure protection efforts.
CBO estimates that implementing S. 1230 would cost $4
million in 2005 and $70 million over the 2005-2009 periods,
assuming appropriation of the necessary amounts. Enacting the
legislation would not affect direct spending or revenues. S.
1230 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. 1230 is shown in the following table.
The cost of this legislation falls within budget function 800
(general government).
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By fiscal year in millions of dollars--
--------------------------------------------
2005 2006 2007 2008 2009
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CHANGES IN SPENDING SUBJECT TO APPROPRIATION
Estimated authorization level...................................... 5 10 15 20 25
Estimated outlays.................................................. 4 9 14 19 24
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Basis of estimate: For this estimate, CBO assumes that the
bill will be enacted near the start of fiscal year 2005 and
that spending will follow historical patterns for similar
programs.
DHS currently has a Geospatial Management Office within the
CIO's office. According to that office, it is working with
limited authority to coordinate the agency's geospatial
activities. This work includes surveying the existing
geospatial capabilities of DHS agencies and emergency
management needs. Since its inception, the office has spent
about $1 million to perform its current responsibilities.
S. 1230 would codify and expand the current duties of the
CIO's office to provide geographic information and technology.
This includes all information systems within DHS that involve
location data including maps. That office would ensure that
geographic information to plan, prevent, and respond to
emergencies is available to all DHS agencies, including the
Federal Emergency Management Agency and the National
Infrastructure Protection Center. The office also would assure
the interoperability of the department's geographic information
systems.
Based on information from DHS, CBO estimates that the new
office would eventually need about $25 million a year to carry
out its responsibilities under S. 1230. CBO expects that the
office would steadily expand its budget and staff over three to
four years before it reached that level of effort. We estimate
that implementing the bill would cost $70 million over the
2005-2009 period, assuming appropriation of the necessary
funds.
Intergovernmental and private-sector impact: S. 1230
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 Cost: Matthew Pickford:
Impact on State, Local, and Tribal Governments: Melissa
Merrell; and Impact on the Private Sector: Paige Piper/Bach.
Estimate approved by: Peter H. Fontaine, Deputy Assistant
Director for Budget Analysis.
VI. EVALUATION OF REGULATORY IMPACT
Pursuant to the requirements of paragraph 11(b) of rule
XXVI of the Standing Rules of the Senate, the Committee has
considered the regulatory impact of this bill. CBO states that
there are no intergovernmental or private-sector mandates as
defined in the Unfunded Mandates Reform Act and no costs on
state, local, or tribal governments. The legislation contains
no other regulatory impact.
VII. CHANGES IN EXISTING LAW
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, S. 1230 adds entirely new
language and, therefore does not change existing law.