[Senate Report 110-9]
[From the U.S. Government Publishing Office]
Calendar No. 34
110th Congress Report
SENATE
1st Session 110-9
======================================================================
NATIONAL GEOLOGIC MAPPING REAUTHORIZATION ACT OF 2007
_______
February 15, 2007.--Ordered to be printed
_______
Mr. Bingaman, from the Committee on Energy and Natural Resources,
submitted the following
R E P O R T
[To accompany S. 240]
The Committee on Energy and Natural Resources, to which was
referred the bill (S. 240) to reauthorize and amend the
National Geologic Mapping Act of 1992, having considered the
same, report favorably thereon without amendment and recommends
that the bill do pass.
Purpose
The purpose of S. 240 is to amend the National Geologic
Mapping Act of 1992 to reauthorize the National Cooperative
Geologic Mapping Program through 2016 and to make minor
modifications to the program.
Background and Need
The National Geologic Mapping Act of 1992 (43 U.S.C. 31)
provides for a coordinated national geologic mapping program
among Federal, State, and university programs. The program has
served to prioritize the geologic mapping requirements of the
Nation and to increase production of geologic maps. Under the
program, the United States Geological Survey works in close
partnership with the State geological surveys. This partnership
has served to deliver modern geologic maps to Federal agencies,
States, and communities through a program with three primary
components.
The Federal component (FEDMAP) addresses issues crossing
jurisdictional boundaries between States, serves the needs of
Federal lands and Federal agencies, and leads to the
development of new applications and processes. The State
component (STATEMAP) provides basic geologic information at a
State level and is funded on a cost-share basis with the
Federal share not to exceed 50 percent of the costs of the
State component. The education component (EDMAP) provides for
broad education in geologic mapping and field analysis and
serves to ensure the adequate training of the next generation
of geologic mappers. Reauthorizing the National Geologic
Mapping Act through 2016 will provide for continued progress in
achieving national mapping needs.
Legislative History
S. 240 was introduced by Senators Craig, Bennett, Bingaman,
Bunning, Domenici, Enzi, Murkowski, and Stevens on January 10,
2007. Senator Roberts became an additional cosponsor on January
30, 2007.
A similar bill, S. 485, was considered during the 109th
Congress. A hearing on S. 485 was conducted by the Subcommittee
on Public Lands and Forests on March 8, 2005 (S. Hrg. 109-19).
The Committee on Energy and Natural Resources ordered S. 485
favorably reported on September 28, 2005 (S. Rept. 109-161).
The Senate passed S. 485 with an amendment by unanimous consent
on November 16, 2005.
At the business meeting on January 30, 2007, the Committee
on Energy and Natural Resources ordered S. 240 favorably
reported without amendment.
Committee Recommendation
The Senate Committee on Energy and Natural Resources, in
open business session on January 31, 2007, by a unanimous vote
of a quorum present, recommends that the Senate pass S. 240.
Section-by-Section Analysis
Section 1 states the short title.
Section 2 amends section 2(a) of the National Geologic
Mapping Act of 1992 which sets forth findings.
Section 3 amends section 2(b) of the National Geologic
Mapping Act of 1992 which states the program purpose.
Section 4 amends section 4(b) of the National Geologic
Mapping Act of 1992 to direct the Secretary of the Interior to
develop a 5-year strategic plan for the mapping program and to
appoint an advisory committee no later than one year after the
date of enactment. The section also requires the Secretary to
provide biennial reports to the relevant Congressional
Committees.
Section 5 makes technical corrections to section 4(c)(2) of
the National Geologic Mapping Act of 1992.
Section 6 amends section 4(d)(1)(B)(ii) of the National
Geologic Mapping Act of 1992 to include needs of land
management agencies at the Department of the Interior as a
consideration in setting mapping priorities under the Federal
component of the program.
Section 7(a) amends section 5(a) of the National Geologic
Mapping Act of 1992 by modifying the composition of the
advisory committee.
Subsection (b) amends section 5(b) of the National Geologic
Mapping Act of 1992 to add as a duty of the advisory committee
scientific overview of geologic maps used or disseminated by
Federal agencies for regulation or land-use planning.
Subsection (c) makes a conforming amendment.
Section 8 amends section 7(a) of the National Geologic
Mapping Act of 1992 to provide that all maps developed with
funding under the program shall be included in the national
data base.
Section 9 amends section 8 of the National Geologic Mapping
Act of 1992 to provide that a report be submitted not later
than 3 years after the date of enactment and biennially
thereafter.
Section 10 amends section 9 of the National Geologic
Mapping Act of 1992 by authorizing up to $64 million per year
fiscal years 2007 through 2016 for the implementation of the
Act.
Cost and Budgetary Considerations
The following estimate of the cost of this measure has been
provided by the Congressional Budget Office.
S. 240--National Geologic Mapping Reauthorization Act of 2007
Summary: S. 240 would reauthorize the national geologic
mapping program and extend current deadlines for plans,
reports, and other requirements established by the National
Geologic Mapping Act of 1992. The bill would authorize the
appropriation of $64 million for each of fiscal years 2007
through 2016. (Authorization of appropriations for the program
expired at the end of fiscal year 2005.) Although a full-year
appropriation has not yet been provided for this program, $25
million was appropriated in Public Law 109-383, a joint
resolution making further continuing appropriations for fiscal
year 2007. The geologic mapping program is carried out jointly
by the U.S. Geological Survey (USGS) and state geological
authorities. Under this program, federal and state geologists
are developing a comprehensive geological map of the United
States and a related database of environmental and scientific
information.
Assuming appropriation of the authorized amounts, CBO
estimates that carrying out the 1992 act, as amended by S. 240,
would cost $10 million in fiscal year 2007 and $350 million
over the 2007-2012 period. Enacting this bill would not affect
revenues or direct spending.
S. 240 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. 240 is shown in the following table. The
costs of this legislation fall within budget function 300
(natural resources and environment). For this estimate, CBO
assumes that the entire amounts authorized for the mapping
program will be appropriated for each fiscal year. Estimated
outlays are based on historical spending patterns for this
program.
----------------------------------------------------------------------------------------------------------------
By fiscal year, in millions of dollars--
-----------------------------------------------
2007 2008 2009 2010 2011 2012
----------------------------------------------------------------------------------------------------------------
SPENDING SUBJECT TO APPROPRIATION
Spending Under Current Law for the National Geologic Mapping
Program........................................................
Budget Authority \a\........................................ 25 0 0 0 0 0
Estimated Outlays........................................... 25 2 1 0 0 0
Proposed Changes................................................
Authorization Level......................................... 39 64 64 64 64 64
Estimated Outlays........................................... 10 77 69 66 64 64
Spending Under S. 240 for the National Geologic Mapping Program.
Authorization Level......................................... 64 64 64 64 64 64
Estimated Outlays........................................... 35 79 70 66 64 64
----------------------------------------------------------------------------------------------------------------
\a\ The 2007 level is the amount appropriated to the USGS for activities under the National Geologic Mapping Act
of 1992 by Public Law 109-383, a joint resolution making further continuing appropriations for fiscal year
2007.
Intergovernmental and private-sector impact: S. 240
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: Julie Middleton;
Impact on State, Local, and Tribal Governments: Marjorie
Miller; Impact on the Private Sector: Amy Petz.
Estimate approved by: Peter H. Fontaine, Deputy Assistant
Director for Budget Analysis
Regulatory Impact Evaluation
In compliance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee makes the following
evaluation of the regulatory impact which would be incurred in
carrying out S. 240. The bill is not a regulatory measure in
the sense of imposing Government-established standards or
significant economic responsibilities on private individuals
and businesses.
No personal information would be collected in administering
the program. Therefore, there would be no impact on personal
privacy.
Little, if any, additional paperwork would result from the
enactment of S. 240, as ordered reported.
Executive Communications
Because S. 240 is similar to legislation considered by the
Committee during the 109th Congress, the Committee did not
request Executive Agency views on S. 240. The testimony
provided by the Department of the Interior on March 8, 2005 at
the Subcommittee hearing on S. 485 follows:
Statement of Chris Kearney Deputy Assistant Secretary for Policy and
International Affairs, Department of the Interior
Mr. Chairman, I am pleased to be here today to express the
Administration's views on S. 485, a bill that would reauthorize
the National Geologic Mapping Act of 1992. The Administration
supports the reauthorization, but is concerned that the funding
level proposed for reauthorization exceeds current
appropriations by $38.8 million. Any additional funding for the
National Cooperative Geologic Mapping program will have to
compete with other priorities.
Throughout USGS history, geologic mapping has been one of
our core capabilities. For state geological surveys, some
founded even earlier than the USGS, geologic mapping has been
an integral part of their history as well. A map is the best
and most understandable way of portraying a great variety of
geologic information. The diversity of information produced by
a geological map includes: the distribution of mineral, energy
and ground water resources; presently active faults whose
movements may cause devastating earthquakes; and the
distribution of surficial deposits that form the substrate for
wetlands and other ecologically diverse settings. Geologic maps
and investigations assist in understanding the processes
responsible for creating the natural hazards and can extend the
knowledge of past events beyond the brief time for which human
observations are available. This work is critical in assessing
the extent, severity, and likelihood of future events.
Wildfires can create conditions that intensify the potential
for damage from landslides and excessive erosion in burned-over
areas. Hurricanes, floods, and tsunamis leave traces of their
destruction in the geologic record (through both erosion and
sediment deposition), thereby allowing assessment of long-term
risk. These insights can facilitate risk reduction through
opportunities to limit damage and loss of life through the
designs and placements of future structures. State Geological
Surveys and the U.S. Geological Survey play vital advisory
roles in such loss-reduction activities. They also aid others
in identifying the vulnerability associated with existing
structures, which is necessary to facilitate cost-effective
mitigation efforts. Maps depicting site response to ground
shaking provide essential background information for
establishing building codes and defining mitigation strategies.
The stakes are high because these hazards collectively cause
tens of billions of dollars of annualized damage in the United
States. Fortunately, much can be done to reduce the risks and
lower the future damages. In the case of assessing the
vulnerability of buildings, as in many others, mapping has
yielded dividends far beyond its original intended goals.
When the 102nd Congress passed the National Geologic
Mapping Act, it recognized that the USGS and the State
geological surveys needed a coordinated program to prioritize
the geologic mapping requirements of the Nation, and to
increase the production of geologic maps. Geologic mapping has
always been, and continues to be, a labor intensive exercise
that involves field work to collect information; laboratory
work to better understand the composition, properties and age
of the materials collected; and the use of remote sensing to
better extrapolate what has been learned in one location to a
larger area. All of these aspects of geologic mapping cost
money and require skilled practitioners. It becomes critically
important for the USGS and the fifty State geological surveys
to husband and leverage their resources. I can confidently tell
you today that the National Cooperative Geologic Mapping
Program has been extremely effective over the past 13 years
doing exactly that. I would like to share some milestones of
progress with you.
During the 13 years since passage of the Act, USGS and the
State geological surveys have produced well over 7,500 new
geologic maps. In 2004 alone, over 400 geologic maps and
reports were published. Data in these maps cover a combined
area of nearly 100,000 square miles. The high priority areas
selected to map were determined by stakeholder groups, land
management agencies, and state mapping advisory committees.
During the last 13 years geologic maps have been completed
in National Parks, National Forests, and lands managed by BLM
and other land-management agencies. To give one timely example,
geologic maps of all four major National Forests in southern
California were completed in the past year. These maps were put
to good use by the Burned Area Emergency Response teams (BAER)
that responded to the fires that devastated large areas between
Los Angeles and San Diego. They are continuing to be used
during the winter rainy season to predict where major debris
flows, and or mud slides, might endanger the local communities.
In 1993, the first year after initial passage of the Act,
34 state geological surveys and the USGS participated in this
program to produce new geologic maps. In 2004 the number of
State geological surveys participating has grown to 47. In that
first year, $1.2 million was distributed to the state surveys.
Since 2001 over $6 million in federal funds has been matched
annually by state survey dollars. Cumulatively, over the 13
years of the program, over $55 million has been distributed to
48 states, and these federal dollars were matched by state
dollars.
In 1995 the education component of the program, EDMAP, was
implemented to train the next generation of geologic mappers.
This training component fills a gap generally not addressed
through National Science Foundation grants and other
mechanisms. In the first year of the program, fewer than 40
students received funds to do field work and learn how to
construct a geologic map. Currently, over 550 university
students from 120 universities across the Nation have received
training. Initially, EDMAP only supported graduate students. In
2000, the decision was made to expand support to undergraduate
students in the hope that this would positively influence their
decision to continue in the Earth Sciences. We are presently in
the process of surveying all former EDMAP recipients. I can
report, from the information received to date, that this
training program has been successful. Of those surveyed
candidates that have responded, 100% of the Masters and Ph.D.
candidates and 82% of the B.S. candidates have all continued in
geoscience. These figures are above the national averages and
attest to the strength of EDMAP.
In 1999 two economists from the Illinois State Geological
Survey teamed up with the Kentucky Geological Survey to
undertake a rigorous analysis of the economic benefits of
detailed geologic mapping to Kentucky. Two conclusions from
this study are particularly worth mentioning. First, the total
value of the geologic mapping program, at the minimum, is at
least 25 times the cost of the program. Second, even though the
bedrock geologic maps produced in Kentucky were originally
created primarily for the coal industry, during the past 20
years these maps have been used by a wide array of users for
everything from exploring for groundwater resources to planning
cities to finding minerals.
Currently, USGS is in close coordination and agreement with
the Association of American State Geologists (AASG) on this
reauthorization bill and on associated geologic mapping issues.
During the past year we have met to discuss the Act (PL-106-
148) frequently, and while we recommend a few changes which I
will discuss in a moment, we feel that the National Geologic
Mapping Act continues to serve the Nation very well and needs
little revision. The Act was also reviewed by the Federal
Advisory Committee to the National Cooperative Geologic Mapping
Program last month, and my comments today incorporate their
conclusions as well.
The principal changes in this reauthorization bill are:
First, an increase from 48% to 50% of new funds, if
appropriated, that will be made available for matching-funds
grants to State geological surveys, second, an increase from 2%
to 4% of new funds for matching funds grants to Universities to
train the next generation of geologic mappers, and third,
keeping future authorization levels equal to the 2005 level in
the present Act.
With the development of digital mapping technology and the
Internet, geologic maps have become the most effective means of
providing decision-makers and their geotechnical consultants
with information that they need. All geologic maps being
produced today under the auspices of the National Cooperative
Geologic Mapping Program are digital, and each year more and
more of these maps are being provided on the Internet. However,
due to the labor intensive nature of producing geologic maps, a
large percentage of the Nation has yet to be mapped. We are
encouraged by this legislation to continue in this critical
effort. With the development of digital mapping technology,
geologic mapping is experiencing a renaissance in its use and
applicability. During the past 13 years the USGS and the state
geological surveys have worked together to implement the
National Geologic Map Database, as called for in the Act. While
this database provides a variety of tools and services, I would
like to highlight just one--a catalog that provides information
on almost every geologic map ever produced in the United
States, and how anyone can obtain copies of the maps. This
invaluable information spans 60,000 products.
In 2004, the American Geological Institute (AGI) published
a new booklet entitled Meeting Challenges with Geologic Maps.
The USGS, the Association of American State Geologists, the
National Park Service, and the Geological Society of America
worked with AGI to produce this educational publication. It
provides many excellent examples of how geologic maps are a
public good and provide benefit to the Nation. This would not
be happening without the National Geologic Mapping Act.
Mr. Chairman, in concluding my remarks, I would like to
state that the National Geologic Mapping Act of 1992, and its
subsequent reauthorizations, have been instrumental in helping
focus attention on the Nation's need for a new generation of
high-quality geologic maps. The Administration supports the
reauthorization, but is concerned that the funding level
proposed for reauthorization significantly exceeds current
appropriations. Any additional funding for the National
Cooperative Geologic mapping program will have to compete with
other priorities.
Thank you, Mr. Chairman, for the opportunity to express the
views of the Administration on the National Geologic Mapping
Act. I would be happy to respond to any questions you may have.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
the bill S. 240, as ordered reported, are shown as follows
(existing law proposed to be omitted is enclosed in black
brackets, new matter is printed in italic, existing law in
which no change is proposed is shown in roman):
National Geologic Mapping Act of 1990
[43 U.S.C. 31a]
* * * * * * *
SEC. 2. FINDINGS AND PURPOSE.
(a) Findings.--The Congress finds and declares that--
[(1) during the past 2 decades, the production of
geologic maps has been drastically curtailed;]
(1) although significant progress has been made in
the production of geologic maps since the establishment
of the national cooperative geologic mapping program in
1992, no modern, digital, geologic map exists for
approximately 75 percent of the United States;
(2) geologic maps are the primary data base for
virtually all applied and basic earth-science
investigations, including--
(A) exploration for and development of
mineral, energy, and water resources;
(B) screening and characterizing sites for
toxic and nuclear waste disposal;
(C) land use evaluation and planning for
Homeland and environmental protection;
(D) earthquake hazards reduction;
(E) [predicting] identifying volcanic
hazards;
(F) design and construction of infrastructure
requirements such as utility lifelines,
transportation corridors, and surface-water
impoundments;
(G) reducing losses from landslides and other
ground failures;
(H) mitigating effects of coastal and stream
erosion;
(I) siting of critical facilities; [and]
(J) recreation and public awareness; and
[(J)] (K) basic earth-science research;
(3) Federal agencies, State and local governments,
private industry, and the general public depend on the
information provided by geologic maps to determine the
extent of potential environmental damage before
embarking on projects that could lead to preventable,
costly environmental problems or litigation;
* * * * * * *
(9) advances in digital technology and geographical
information system science have made geologic map
databases increasingly [important] available as
decision support tools for land and resource
management; and
(10) a comprehensive nationwide program of geologic
mapping of surficial and bedrock deposits is required
in order to systematically build the Nation's geologic-
map data base at a pace that responds to increasing
demand.
(b) Purpose.--The purpose of this Act is to expedite the
production of a geologic-map data base for the Nation, to be
located within the United States Geological Survey, which can
be applied to landuse management, assessment, and utilization,
conservation of natural resources, groundwater management, and
environmental protection and management.
* * * * * * *
SEC. 4. GEOLOGIC MAPPING PROGRAM.
(a) Establishment.--
(1) In general.--There is established a national
cooperative geologic mapping program between the United
States Geological Survey and the State geological
surveys, acting through the Association.
* * * * * * *
(b) Responsibilities of the Survey.--
(1) Lead agency.--The Survey shall be the lead
Federal agency responsible for planning, developing
national priorities and standards for, coordinating,
and managing the geologic mapping program. In carrying
out this paragraph, the Secretary, acting through the
Director, shall--
(A) develop a 5-year strategic plan for the
geologic mapping program in accordance with
section 6, which plan shall be submitted to the
Committee on Resources of the House of
Representatives and the Committee on Energy and
Natural Resources of the Senate [not later than
1 year after December 9, 1999;] not later than
1 year after the date of enactment of the
National Geologic Mapping Reauthorization Act
of 2007;
(B) appoint with the advice and consultation
of the Association, the advisory committee [not
later than 1 year after December 9, 1999, in
accordance] not later than 1 year after the
date of enactment of the National Geologic
Mapping Reauthorization Act of 2007 in
accordance with section 5; and
(C) [not later than 3 years after December 9,
1999, and biennially thereafter, submit] submit
biennially a report to the Committee on Energy
and Natural Resources of the United States
Senate and to the Committee on Resources of the
House of Representatives identifying--
* * * * * * *
(c) Program Objectives.--The objectives of the geologic
mapping program shall include--
(1) determining the Nation's geologic framework
through systematic development of geologic maps at
scales appropriate to the geologic setting and the
perceived applications, such maps to be contributed to
the national geologic map data base;
(2) development of a complementary national
[geophysical-map data base, geochemical-map data base,
and a] geochronologic and paleontologic data base that
[provide] provides value-added descriptive and
interpretative information to the geologic-map data
base;
(3) application of cost-effective mapping techniques
that assemble, produce, translate and disseminate
geologic-map information and that render such
information of greater application and benefit to the
public; and
(4) development of public awareness of the role and
application of geologic-map information to the
resolution of national issues of land use management.
(d) Program Components.--
(1) Federal component.--
(A) In general.--The geologic mapping program
shall include a Federal geologic mapping
component, the objective of which shall be to
determine the geologic framework of areas
determined to be vital to the economic, social,
environmental, or scientific welfare of the
United States.
(B) Mapping priorities.--For the Federal
component, mapping priorities--
(i) shall be described in the 5-year
plan under section 31e of this title;
and
(ii) shall be based on--
(I) national requirements for
geologic map information in
areas of multiple-issue need or
areas of compelling single-
issue need; [and]
(II) national requirements
for geologic map information in
areas where mapping is required
to solve critical earth science
problems[.]; and
(III) the needs of land
management agencies of the
Department of the Interior.
* * * * * * *
SEC. 5. ADVISORY COMMITTEE.
(a) Establishment.--
(1) In general.--There shall be established a [10-
member] 11-member geologic mapping advisory committee
to advise the Director on planning and implementation
of the geologic mapping program.
(2) Members ex officio.--Federal agency members shall
include the Administrator of the Environmental
Protection Agency or a designee, the Secretary of the
Interior or a designee from a land management agency of
the Department of the Interior, the Secretary of Energy
or a designee, and the Secretary of Agriculture or a
designee[, and the Assistant to the President for
Science and Technology or a designee].
(3) Appointed members.--[Not later than 1 year after
December 9, 1999, in consultation] In consultation with
the Association, the Secretary shall appoint to the
advisory committee two representatives from the Survey
(including the [Chief Geologist, as Chairman] Associate
Director for Geology, as Chair), two representatives
from the State geological surveys, one representative
from academia, [and one representative from the private
sector] 2 representatives from the private sector.
(b) Duties.--The advisory committee shall--
(1) review and update the 5-year plan prepared by the
Director pursuant to section 6;
(2) review the scientific progress of the geologic
mapping program; [and]
(3) provide a scientific overview of geologic maps
(including maps of geologic-based hazards) used or
disseminated by Federal agencies for regulation or
land-use planning; and
[(3)] (4) submit an annual report to the Secretary
that evaluates the progress of the Federal, State, and
university mapping activities and evaluates the
progress made toward fulfilling the purposes of section
4-7.
* * * * * * *
SEC. 7. NATIONAL GEOLOGIC MAP DATABASE.
(a) Establishment.--
(1) In general.--The Survey shall establish a
national [geologic map] geologic-map database.
(2) Function.--The database shall serve as a national
catalog and archive, distributed through links to
Federal and State geologic map holdings, that
includes--
[(A) all maps developed under the Federal
component and the education component;]
(A) all maps developed with funding provided
by the National Cooperative Geologic Mapping
Program, including under the Federal, State,
and education components;
* * * * * * *
SEC. 8. BIENNIAL REPORT.
[Not later than 3 years after December 9, 1999, and
biennially] Not later than 3 years after the date of enactment
of the National Geologic Mapping Reauthorized Act of 2007 and
biennially thereafter, the Secretary shall submit to the
Committee on Resources of the House of Representatives and the
Committee on Energy and Natural Resources of the Senate a
report that--
* * * * * * *
SEC. 9. AUTHORIZATION OF APPROPRIATIONS.
[(a) In General.--There are authorized to be appropriated
to carry out sections 31a to 31h of this title--
[(1) $28,000,000 for fiscal year 1999;
[(2) $30,000,000 for fiscal year 2000;
[(3) $37,000,000 for fiscal year 2001;
[(4) $43,000,000 for fiscal year 2002;
[(5) $50,000,000 for fiscal year 2003;
[(6) $57,000,000 for fiscal year 2004; and
[(7) $64,000,000 for fiscal year 2005.]
(a) In General.--There is authorized to be appropriated to
carry out this Act $64,000,000 for each of fiscal years 2007
through 2016.
(b) Allocation of Appropriations.--Of any amounts
appropriated for any fiscal year in excess of the amount
appropriated for fiscal year [2000] 2005--
(1) [48] 50 percent shall be available for the State
component, and
(2) [2] 4 percent shall be available for the
education component.
* * * * * * *