Frequently Asked Questions: Mapping of U.S. Ocean and Coastal Waters
Changes from July 11, 2023 to July 29, 2025
This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with red strikethrough and textual matter added in the later version is indicated with blue.
Contents
- Introduction
- What Is Ocean and Coastal Mapping?
- What Are Some Benefits of Ocean and Coastal Mapping?
- What Are U.S. Goals for Ocean and Coastal Mapping?
- How Much of U.S. Ocean and Coastal Waters Are Mapped?
- How Are Ocean and Coastal Waters Mapped?
- Mapping with Sonar
- Mapping with Lidar
- How Do Oceanographic Research Vessels and Uncrewed Marine Systems Contribute to U.S. Mapping Capabilities?
- How Are U.S. Bathymetric Data Compiled and Made Available?
- What Are Some Challenges to Ocean and Coastal Water Mapping Efforts?
- Which U.S. Ocean and Coastal Waters Are the Least Mapped?
- Ocean and Coastal Waters of Alaska
- Lakebeds of the Great Lakes
- How Have Congress and the President Directed Federal Agencies to Support Ocean and Coastal Mapping Efforts?
- How Are Federal Ocean and Coastal Mapping Efforts Coordinated?
- How Are Crowdsourced Data and Nonfederal Partners Included in Federal Ocean and Coastal Mapping Efforts?
- What Are Some Potential Issues for the 119th Congress?
- Federal Investment in Ships
- Federal Workforce and U.S. Leadership in Ocean Science and Technology
- Federal Support of Public-Private Partnerships
- U.S. National Security and Economic Interest
Figures
- Figure 1. Bathymetric Map of Offshore Washington State
- Figure 2. Relationship Between Mapping, Exploration, and Characterization
- Figure 3. Unmapped U.S. Coastal, Ocean, and Great Lakes Waters in January 2025
- Figure 4. Selected Assets Equipped with Multibeam Sonar and Lidar Instruments
- Figure 5. Structure of the Interagency Committees, Councils, and Working Groups with Primary Mapping, Exploration, and Characterization Responsibilities
Tables
- Table 1. Percentage of Unmapped U.S. Coastal, Ocean, and Great Lakes Waters
- Table 2. Selected U.S.-Owned Oceanographic Research Vessels
- Table 3. Chronology of Selected Federal Ocean and Coastal-Mapping-Related Authorities
- Table 4. Selected Federal Departments and Agencies Involved in U.S. Ocean and Coastal Mapping
- Table A-1. Selected Federal Departments, Agencies, and Offices Involved in U.S. Ocean and Coastal Mapping
Appendixes
Summary
Ocean and coastal mapping involves activities that collect data and information about theexplanatory language. explanatory language.
two interagency working groups (IWGs): the IWG on Ocean and Coastal Mapping and the IWG on Ocean two interagency working groups (IWGs): the IWG on Ocean and Coastal Mapping and the IWG on Ocean
partners have prioritized mapping partners have prioritized mapping
modern modern bathymetric data—the depth of the underwater terrain relative to the surface water level as collected by —the depth of the underwater terrain relative to the surface water level as collected by
sonar instruments. The seafloor surrounding Alaska and the lakebeds of the Great Lakes remain the least mapped areas (by sonar instruments. The seafloor surrounding Alaska and the lakebeds of the Great Lakes remain the least mapped areas (by
percentage) of U.S. ocean and coastal waters. In 2024, the NOMEC Council expanded the goals of the NOMEC Strategy to include the U.S. extended continental shelf (i.e., areas of the U.S. continental shelf that extend beyond the 200 nautical mile limit of the U.S. exclusive economic zone). At the current pace, federal agencies are unlikely to meet the mapping goals of the NOMEC Strategy by their target years (i.e., 2030 and 2040), according to the NOMEC Council.
Congress shapes U.S. ocean and coastal mapping efforts by authorizing and/or appropriating funding to certain agencies to engage in or support mapping activities specifically or broadly. In the 119th Congress, some Members introduced legislation that would direct agencies to focus on mapping efforts in specific U.S. regions (H.R. 2731) or for specific resources (H.R. 2556, H.R. 3803, H.R. 4018). Some Members also introduced legislation that would reauthorize the U.S. Integrated Ocean Observing System, which manages some public-private partnerships with a focus on mapping (H.R. 2294, S. 2126). In a broader context of the Trump Administration's efforts to reduce federal spending and the size of the federal government, Congress may assess the appropriate scale of federal support for ocean and coastal mapping efforts (including for federal ships and other maritime research infrastructure), the potential for efficiencies to reduce cost (including through private sector involvement), and the value of ocean mapping to other policy goals (including federal interest in offshore energy and mineral development and other national security concerns).
Introduction
Ocean and coastal mapping involves activities that collect data and information about the Ocean and coastal mapping involves activities that collect data and information about theunderwater terrain (i.e., seafloor or lakebed).underwater terrain (i.e., seafloor or lakebed).1 Ocean and coastal mapping provides useful Ocean and coastal mapping provides useful
information for maritime commerce, information for maritime commerce,
offshore energy production, marine tourism and recreation, offshore energy production, marine tourism and recreation,
Congress has shown interest in ocean and coastal mapping activities. Congress has directed and Congress has shown interest in ocean and coastal mapping activities. Congress has directed and
funded certain federal departments and agencies to collect relevant data and information about funded certain federal departments and agencies to collect relevant data and information about
U.S. ocean and coastal watersU.S. ocean and coastal waters
the terrain beneath certain U.S. ocean and coastal waters. One such executive action,the terrain beneath certain U.S. ocean and coastal waters. One such executive action, the 2018 Executive Executive
guide federal ocean policy.guide federal ocean policy.
and coastal mapping activities aim to completely map the terrain beneath U.S. ocean waters by and coastal mapping activities aim to completely map the terrain beneath U.S. ocean waters by
2030 and the terrain beneath U.S. coastal waters by 2040.2030 and the terrain beneath U.S. coastal waters by 2040.
4 The Ocean Policy CommitteeOcean Policy Committee
Strategy for Mapping, Exploring, and Characterizing the U
nited States Exclusive Economic Zone, developed in 2021 pursuant to a 2019 presidential memorandum.5 This strategy is commonly known as the This strategy is commonly known as the
CharacterizationCharacterization (NOMEC) Strategy. In December 2024, the NOMEC Council, which consists of members from 12 federal agencies, released an update to the 2021 Implementation Plan for the NOMEC Strategy (hereinafter referred to as the 2024 NOMEC Implementation Plan).6 The 2024 NOMEC Implementation Plan stated that, at the current pace, federal agencies are unlikely to meet the mapping goals of the NOMEC Strategy by their target years (i.e., 2030 and 2040).7 According to the NOMEC Council, the actions recommended in the 2024 NOMEC Implementation Plan are "subject to the Administration's annual budget process and the availability of appropriations."8
In 2025, the Trump Administration issued E.O.s and a Department of the Interior (DOI) secretarial order (S.O.) that identified ocean and coastal mapping priorities with respect to offshore energy and mineral resources:
- E.O. 14154, "Unleashing American Energy," among other provisions, encouraged energy exploration on the outer continental shelf and directed the Secretary of the Interior to "prioritize efforts to accelerate the ongoing, detailed geologic mapping of the United States."9
- E.O. 14285, "Unleashing America's Offshore Critical Minerals and Resources," made it a policy of the United States to advance seabed mineral development by "supporting investment in deep sea science, mapping, and technology," among other policies.10
- DOI's S.O. 3418, "Unleashing American Energy," following E.O. 14154, directed DOI Assistant Secretaries to review all agency actions and submit a plan to the Secretary of the Interior that includes actions to prioritize mapping, among other efforts.11
This report answers questions about ocean and coastal mapping activities and relevant U.S. mapping efforts. In this report, mapping of U.S. coastal and ocean waters refers to the mapping of
- the seabed beneath coastal-state-controlled waters, which extend at least 3 nautical miles (nmi) from the shoreline;12
- the seabed beneath the U.S. exclusive economic zone (EEZ; i.e., the ocean area located generally between 3 nmi and 200 nmi from the shoreline);13
- the seabed of the U.S. extended continental shelf (ECS; i.e., areas of the seabed beyond the 200 nmi limit of the EEZ over which the United States claims jurisdiction);14 and
- the lakebeds of the Great Lakes.
The NOMEC Council updated the 2021 NOMEC Implementation Plan in 2024 to include the U.S. ocean and coastal areas listed above.15
What Is Ocean and Coastal Mapping?Mapping of ocean and coastal waters involves activities that collect data and information about Mapping of ocean and coastal waters involves activities that collect data and information about
the underwater terrain (i.e., seafloor or lakebed).the underwater terrain (i.e., seafloor or lakebed).
mapping the seafloor beneath the U.S. EEZmapping the seafloor beneath the U.S. EEZ and areas of the U.S. ECS, whereas U.S. coastal mapping involves mapping the , whereas U.S. coastal mapping involves mapping the
seafloor beneath stateseafloor beneath state-controlled waters ( waters (up to at least 3 at least 3
Subtitle B, of P.L. 111-11Subtitle B, of P.L. 111-11), as amended, defined ocean and coastal mapping as
the acquisition, processing, management, maintenance, interpretation, certification, and dissemination of physical, biological, geological, chemical, and archaeological characteristics and boundaries of ocean and coastal areas, resources, and sea beds through the use of acoustics, satellites, aerial photogrammetry, light and imaging, direct sampling, and other mapping technologies.17
The
depth relative to the surface water level, known as depth relative to the surface water level, known as bathymetric data..
maps on land, bathymetric maps reveal three-dimensional features of the underwater terrain maps on land, bathymetric maps reveal three-dimensional features of the underwater terrain
(Figure 1)
. To study the bottom type and sediment composition (e.g., muddy, sandy, rocky) of the underwater terrain, researchers use backscatter data.20 Together, bathymetric and backscatter data allow researchers to create detailed maps.21
Figure 1. Bathymetric Map of Offshore Washington State
Source: U.S. Geological Survey, Pacific Coastal and Marine Science Center, U.S. Geological Survey, Pacific Coastal and Marine Science Center,
Washington,Washington,
. Notes: This bathymetric map reveals This bathymetric map reveals
state. state.
and black represents higher elevation.and black represents higher elevation.
.22 The James M. Inhofe National Defense Authorization Act for Fiscal Year 2023 defined The James M. Inhofe National Defense Authorization Act for Fiscal Year 2023 defined
exploration as as
understood area of the seafloor, sub-bottom, or water column; and (B) an initial assessment of the understood area of the seafloor, sub-bottom, or water column; and (B) an initial assessment of the
physical, chemical, geological, biological, archeological, or other characteristics of such an physical, chemical, geological, biological, archeological, or other characteristics of such an
area.area.
interpretations for a specific area of interest of the sea floor, sub-bottom, water column, or interpretations for a specific area of interest of the sea floor, sub-bottom, water column, or
hydrologic features, including water masses and currents, in direct support of specific research, hydrologic features, including water masses and currents, in direct support of specific research,
environmental protection, resource management, policy making, or applied mission objective.environmental protection, resource management, policy making, or applied mission objective.
This report focuses on ocean and coastal mapping activities.
Figure 2. Relationship Between Mapping, Exploration, and Characterization
Source: Congressional Research Service, adapted from Ocean Policy Committee, Ocean Science and Technology Subcommittee, National Ocean Mapping, Exploration, and Characterization Council, Implementation Plan for the National Strategy for Ocean Mapping, Exploring, and Characterizing the United States Exclusive Economic Zone, January 2021, p. 6.
Notes: Ocean and coastal mapping can inform both exploration and characterization activities. Exploration can inform in-depth characterization.
Some Members of Congress and various stakeholders have cited benefits of ocean and coastal water mapping. For example, Congress, in its 2022 amendments to several ocean and coastal mapping laws, noted that "mapping, exploration, and characterization of the ocean provides basic, essential information to protect and restore the marine environment, stimulate economic activity, and provide security for the United States."24 According to the NOMEC Council, "Ocean mapping, exploration, and characterization … is necessary to advance maritime commerce, domestic seafood production, healthy and sustainable fisheries, coastal resilience, energy production, tourism and recreation, environmental protection, conservation, national and homeland security, and other interests."25
Ocean and coastal mapping can aid in a range of activities, including
- exploring for and extracting offshore oil and gas and seabed minerals,26
- siting telecommunication and offshore wind-turbine-related cables,27
- locating submerged cultural sites and unidentified shipwrecks,28
- identifying navigational hazards for recreational boating and commercial shipping,29
- determining the extent of the U.S. continental shelf,30
- assessing marine geohazards,31
- tracking shoreline change and its impacts on erosion and flooding,32 and
- protecting marine environments and ecosystems of interest, such as essential fish habitats.33
Mapping?
In June 2020, the Ocean Science and Technology Subcommittee of the Ocean Policy Committee In June 2020, the Ocean Science and Technology Subcommittee of the Ocean Policy Committee
announced the NOMEC Strategy (for more information about federal committees, councils, and announced the NOMEC Strategy (for more information about federal committees, councils, and
interagency working groups interagency working groups [IWGs] focused on ocean and coastal mapping, seefocused on ocean and coastal mapping, see
and Coastal Mapping Efforts Coordinated?
Goal 2: Map [U.S. waters]
Goal 3:[m], or [m], or
coastal waters (water depths less than 40 m)coastal waters (water depths less than 40 m)
Administration (NOAA) Administrator signed a memorandum of understanding that formalized Administration (NOAA) Administrator signed a memorandum of understanding that formalized
U.S. participation in the Nippon Foundation-General Bathymetric Chart of the Oceans Seabed U.S. participation in the Nippon Foundation-General Bathymetric Chart of the Oceans Seabed
2030 Project (Seabed 2030).2030 Project (Seabed 2030).
43 How Much of U.S. Ocean and Coastal Waters Are
Mapped?
NOAA periodically analyzes available modern (post-NOAA periodically analyzes available modern (post-
ocean and coastal mapping progress.ocean and coastal mapping progress.
annual progress annual progress
Lakes).Lakes).
previous year and present this information as the percentage of U.S. waters previous year and present this information as the percentage of U.S. waters
ocean, and Great Lakes waters were unmapped as of ocean, and Great Lakes waters were unmapped as of
unmapped areas can mean that can mean that
over these areas or data over these areas or data
acquisition, seeacquisition, see
").50 According to NOAA, a specified area of the seafloor or lakebed of the Great Lakes is considered mapped when at least one sonar (sound navigation and ranging) or lidar (light detection and ranging) measurement has been collected for that area (for more on sonar and lidar, see "How Are Ocean and Coastal Waters Mapped?").51 Table 1. Percentage of Unmapped U.S. Coastal, Ocean, and Great Lakes Waters
Region
Total Area in snmi
(% total area)
Percentage Unmapped
2017
2018
2019
2020
2021
2022
2023
All U.S. Waters
3,878,700
59%
57%
54%
53%
52%
50%
48%
46%
Atlantic & Gulf of America
547,200
49%
48%
43%
41%
40%
37%
36%
31%
Caribbean
61,500
—
45%
44%
42%
42%
30%
30%
30%
Alaska
1,283,500
74%
73%
72%
72%
69%
66%
63%
62%
Pacific
249,300
29%
29%
24%
22%
20%
19%
17%
15%
Hawaii & Pacific Remote Islands
1,692,200
55%
53%
50%
49%
48%
47%
47%
44%
Great Lakes
45,000
—
96%
96%
95%
95%
93%
92%
87%
85%
https://iocm.noaa.gov/seabed-2030/mapping-progress-report2021.pdf; March 2022, https://iocm.noaa.gov/seabed-2030/mapping-progress-report2021.pdf; March 2022,
documents/mapping-progress-report2022.pdfdocuments/mapping-progress-report2022.pdf;
Islands, Guam, American Samoa, Wake Island, Johnston Islands, Guam, American Samoa, Wake Island, Johnston
Figure 3. Unmapped U.S. Coastal, Ocean, and Great Lakes Waters in January 2025 Source: Congressional Research Service, adapted from National Oceanic and Atmospheric Administration (NOAA), "2025 Progress Report: Progress Report:
Unmapped U.S. Waters,Unmapped U.S. Waters,
unmapped (red areas). The seaward extent of unmapped (red areas). The seaward extent of
Underwater terrain is Underwater terrain is primarily mapped using bathymetric data.mapped using bathymetric data.
and private companies collect bathymetric data using sonar or and private companies collect bathymetric data using sonar or
information on the involvement of federal agencies and departments, see information on the involvement of federal agencies and departments, see "
Ocean and Coastal Mapping Efforts Coordinated?
seafloor beneath the surface of the ocean and seafloor beneath the surface of the ocean and
coastal waters (up to a water depth of 80 m); sonar and coastal waters (up to a water depth of 80 m); sonar and
the lakebeds of the Great Lakes and other lakes the lakebeds of the Great Lakes and other lakes (Figure 4). The NOMEC Strategy. The NOMEC Strategy
U.S. waters with a depth greater than 40 U.S. waters with a depth greater than 40
via sonar instrumentsvia sonar instruments
would rely on data collected via sonar and would rely on data collected via sonar and
Figure 4. Selected Assets Equipped with Multibeam Sonar and
" March March
report2025.pdf. Notes: The underwater terrain of the shallow coastal areas is generally mapped using aircraft and satellites The underwater terrain of the shallow coastal areas is generally mapped using aircraft and satellites
equipped with equipped with
meters water depth. Small boats equipped with multibeam sonar instruments can be used to map the meters water depth. Small boats equipped with multibeam sonar instruments can be used to map the
underwater terrain of shallow coastal areas but may be limited by navigation underwater terrain of shallow coastal areas but may be limited by navigation
with multibeam sonar technology are best suited for mapping the deep underwater terrain beneath open waters with multibeam sonar technology are best suited for mapping the deep underwater terrain beneath open waters
free of navigation hazards.free of navigation hazards. Mapping with Sonar
data are used to create bathymetric maps. Sonar systems send sound pulses from a sensor—called data are used to create bathymetric maps. Sonar systems send sound pulses from a sensor—called
a a transducer array—attached to the bottom of a ship, or —attached to the bottom of a ship, or
terrain. The amount of time it takes for sound pulses to leave the array, bounce off the underwater terrain. The amount of time it takes for sound pulses to leave the array, bounce off the underwater
terrain, and return to the array is used to calculate the distance to the seafloor (i.e., water depth).terrain, and return to the array is used to calculate the distance to the seafloor (i.e., water depth).
58 The faster a sound pulse returns to the array, the shallower the water depth. Commonly used sonar The faster a sound pulse returns to the array, the shallower the water depth. Commonly used sonar
systems are systems are
underwater terrain directly beneath the ship, andunderwater terrain directly beneath the ship, and
sound pulses to collect data of the underwater terrain directly beneath and out to each side of the sound pulses to collect data of the underwater terrain directly beneath and out to each side of the
ship.ship.
backscatter measurements, which correspond to the return beammeasurements, which correspond to the return beam
provides information about the seafloorprovides information about the seafloor
of the sound pulse, returning a weak signal to the receiver, whereas a rocky surface absorbs little of the sound pulse, returning a weak signal to the receiver, whereas a rocky surface absorbs little
inaccessible to oceanographic research vesselsinaccessible to oceanographic research vessels
overcome some of these challenges. overcome some of these challenges.
aircraft, but some satellites are also equipped with aircraft, but some satellites are also equipped with
primarily consists of a laser emitter-receiver scanning unit and a specialized global positioning primarily consists of a laser emitter-receiver scanning unit and a specialized global positioning
system (GPS) unit; bathymetric system (GPS) unit; bathymetric
water. Similar to sonar, the amount of time it takes pulsed laser beams to reach the underwater water. Similar to sonar, the amount of time it takes pulsed laser beams to reach the underwater
terrain and return to a receiver fixed to an aircraft or satellite is used is calculate water depth.terrain and return to a receiver fixed to an aircraft or satellite is used is calculate water depth.
containing sediment, marine vegetation, and other materials reduce the laser lightcontaining sediment, marine vegetation, and other materials reduce the laser light
penetrate through the water.65
The National Aeronautics and Space Administration (NASA), NOAA, and the U.S. Army Corps of Engineers (USACE) operate and use airborne lidar instruments equipped with a laser emitting green light to map and chart coastal waters (up to 80 m water depth). For example, the Joint Airborne Lidar Bathymetry Technical Center of Expertise, a multiagency effort led by USACE, uses airborne lidar bathymetry technology to map and chart coastal waters worldwide.66 While USACE owns airborne lidar instruments, USACE contracts for the aircraft to fly the instruments.67 As another example, NASA collects coastal bathymetric data using lidar and radar instruments on satellites (e.g., Ice, Cloud and Land Elevation Satellite 2 [ICESat-2] and Surface Water and Ocean Topography [SWOT]),68 the International Space Station,69 and aircraft.70 Such satellite instruments were not necessarily designed primarily to collect bathymetric data, but their capabilities can be used for that purpose and others, such as measuring the height of the sea or lake surface and sea ice properties.71
How Do Oceanographic Research Vessels and Uncrewed Marine Systems Contribute to U.S. Mapping Capabilities? Federal ocean and coastal mapping efforts depend on the availability of ORVs with mapping capability, including vessels in partnership with the federal government and U.S.-owned vessels (Table 2).72 Two vessels in NOAA's fleet, NOAA Ships Fairweather and Rainier, are over 55 years old. The pending retirement of these two vessels may hinder NOAA's mapping capacity in the Pacific and Arctic Oceans (Table 2).73 The U.S. Academic Research Fleet (ARF), a subset of the U.S. federal oceanographic fleet, currently consists of 17 ORVs that conduct research on the complex ocean, seafloor, and sub-seafloor environment, including the Great Lakes.74 The list of ORVs in Table 2 includes four ARF vessels that are owned by federal agencies and operated by U.S. academic oceanographic institutions through the University-National Oceanographic Laboratory System.75 Table 2. Selected U.S.-Owned Oceanographic Research Vessels|
Name |
Type |
Owner (Operator) |
Home Port |
|
Atlantis* |
Oceanographic |
U.S. Navy (WHOI) |
Woods Hole, MA |
|
Fairweather |
Hydrographic |
NOAA (NOAA) |
Ketchikan, AK |
|
Ferdinand R. Hassler |
Hydrographic |
NOAA (NOAA) |
New Castle, NH |
|
Nancy Foster |
Oceanographic |
NOAA (NOAA) |
Charleston, SC |
|
Okeanos Explorer |
Oceanographic |
NOAA (NOAA) |
Newport, RI |
|
Rainier |
Hydrographic |
NOAA (NOAA) |
Newport, OR |
|
Roger Revelle* |
Oceanographic |
U.S. Navy (Scripps Institution of Oceanography) |
San Diego, CA |
|
Ronald H. Brown* |
Oceanographic |
NOAA (NOAA) |
Charleston, SC |
|
Thomas Jefferson |
Hydrographic |
NOAA (NOAA) |
Norfolk, VA |
|
Thompson* |
Oceanographic |
U.S. Navy (UW School of Oceanography) |
Seattle, WA |
Notes: UW = University of Washington; WHOI = Woods Hole Oceanographic Institution. Asterisk (*) denotes a UNOLS-designated vessel as part of the U.S. Academic Research Fleet.
According to NOAA's 2016 Fleet Plan, the most current plan as of the date of this publication, building new ships to meet growing demands for NOAA's environmental data is the agency's best long-term strategy to reliably and consistently sustain its at-sea data collection capacity.76 In 2023, NOAA awarded a contract for the design and construction of two new vessels, NOAA Ships Surveyor and Navigator, using funding from P.L. 117-169 (commonly referred to as the Inflation Reduction Act of 2022).77 NOAA expects Surveyor and Navigator to join the fleet in 2027 and 2028, respectively, and focus primarily on ocean mapping and nautical charting, serving as replacements for Fairweather and Rainier.78
The 118th Congress provided funding for the acquisition of two Class B vessels (i.e., vessels with primary missions of charting and surveying and of conducting living marine resource surveys) to reduce gaps in mission coverage.79 NOAA also anticipates the acquisition of two other vessels, NOAA Ships Oceanographer and Discoverer, which may contribute to U.S. ocean mapping efforts.80 Congress may consider oversight of NOAA's procurement timeline for its planned new vessels and upgrades to existing vessels in the NOAA fleet to monitor any procurement delays and cost growth.In S.Rept. 118-62, referred to in the explanatory statement accompanying the Consolidated Appropriations Act, 2024 (P.L. 118-42), Congress directed NOAA to develop strategies to continue conducting surveys when vessels are out of commission for service. For example, as of winter 2025, NOAA continued to address "challenging ship repairs" for NOAA Ships Rainier, Ronald H. Brown, and Fairweather.81 NOAA anticipates that NOAA Ship Ronald H. Brown will be delivered from the shipyard in August 2025.82 Strategies were to include "contingency chartering agreements, uncrewed assets capable of operating independent[ly] of vessels, and commercial data purchase agreements."83 S.Rept. 118-62 also provided funding and programmatic direction for autonomous and uncrewed operations for agencywide data acquisition from commercially available "mission-as-a-service" UMS in support of ocean exploration and hydrographic surveys, among other missions.84 According to NOAA, government-owned uncrewed surface vessels are "more cost effective than data buys for ocean mapping when operating more than 70 days per year."85
NOAA and other stakeholders have continued to propose the use of uncrewed marine systems (UMS) to reduce the need for crewed ORVs and increase mapping efficiency.86 Some industry experts contend that UMS could help map around one-third of unmapped U.S. waters.87 The NOAA Uncrewed Systems Operations Center operates a variety of UMS that contribute to seafloor mapping as well as other capabilities.88 For example, in 2021, the center worked to operationalize DriX, an uncrewed surface vehicle, to collect seafloor mapping data, and by November 2024, DriX vehicles had collected bathymetric data across more than 2,600 linear nautical miles.89 Congress may consider oversight of NOAA's use of UMS, whether owned by NOAA or contracted via private UMS operators, to better understand whether UMS are providing similar or superior data at lower costs compared to crewed vessels.
Stakeholders contend that UMS can reduce exposure of personnel to hazards, use less than 1% of the energy of conventional vessels, eliminate discharge for operations in sensitive marine environments, reduce risk of injury to marine mammals (due to slow speed and small size), reduce ORV demand, and reach areas that would otherwise be difficult to access, among other potential benefits.90 Other stakeholders may argue that the replacement of traditional ORVs with UMS would displace offshore jobs and the U.S. shipbuilding industry, although some UMS are operated in tandem with or deployed from ORVs and other survey vessels.91 On April 15, 2025, the Trump Administration issued E.O. 14269, "Restoring America's Maritime Dominance," to increase U.S. maritime manufacturing capabilities and strengthen the recruitment, training, and retention of the relevant workforce.92 NOAA posits that its vessel recapitalization and construction program will contribute to the objectives of E.O. 14269.93 The construction of ORVs forms a relatively small part of the overall workload for building ships for the U.S. government (including ships built for the U.S. Navy and other parts of the Department of Defense, U.S. Coast Guard, and Maritime Administration).
How Are U.S. Bathymetric Data Compiled and Made Available? Congress, through the James M. Inhofe National Defense Authorization Act for Fiscal Year 2023, directed a group of federal agencies and departments toestablish standardized collection and data management protocols, including with respect to metadata, for ocean mapping, exploration, and characterization which—(i) are publicly accessible and locatable via appropriate Federal repositories; (ii) can facilitate the integration of ocean data into products and use innovations from non-Federal partners; and (iii) have appropriate safeguards on the public accessibility of data to protect national security.94
In April 2024, the IWG on Ocean and Coastal Mapping (IWG-OCM), a federal group established in law,95 released a standardized technical protocol for acquisition, processing, and archiving of ocean and coastal mapping data.96
NOAA's National Centers for Environmental Information (NCEI) bathymetry archive is the primary source of bathymetric data.97 NCEI, a source of atmospheric, coastal, geophysical, and oceanic data, is a central repository and archive for global single-beam and multibeam sonar bathymetry.98 Between 2021 and December 2024, NOAA added approximately 400 multibeam surveys of U.S. waters to the NCEI bathymetric archive.99 Bathymetric lidar data are archived by NCEI and NOAA's Digital Coast.100 NCEI bathymetric holdings are compliant with the Geospatial Data Act of 2018 (Title VII, Subtitle F, of P.L. 115-254) as all of these data can be accessed and viewed through the NOAA Bathymetric Data Viewer.101
NCEI's bathymetric holdings include data collected by the federal government, states, academic institutions, nongovernmental institutions, the private sector, and crowdsource providers.102 To establish a working relationship with NCEI, data providers must enter into a submission agreement with NCEI and submit data in standardized formats with appropriate metadata to ensure equal access and useability.103 In cases where NCEI acquires data that are not in a standardized format, NCEI may need to process the data to extract bathymetric information.104
NCEI may not share all acquired bathymetric data for a couple reasons. First, NCEI must process and convert some data into a standardized format; in some instances, data processing could delay public access by a year or more.105 Second, access to certain data could be restricted because of issues related to business proprietary information, ownership disputes, or national security concerns, among other reasons.
The acquisition, management, and availability of U.S. bathymetric data depends on having enough NOAA staff to process and share such data. Reportedly, NCEI suspended some of its activities due to limited staffing in April 2025.106 An agency spokesperson attributed the reduced staffing to the "release of probationary employees, the Deferred Resignation Program[,] and employees retiring."107 The NOAA FY2026 budget request proposed a decrease of $18 million for NCEI from FY2024 enacted levels.108
What Are Some Challenges to Ocean and Coastal Water Mapping Efforts?The 2021 NOMEC Implementation Plan provided a blueprint to coordinate federal and nonfederal efforts aiming to achieve the goals of the NOMEC Strategy. During the development of the 2021 NOMEC Implementation Plan, the NOMEC Council identified several mapping limitations. These included the need to
- improve engagement with stakeholder groups to implement the NOMEC Strategy;
- incorporate marine cultural heritage, underwater archaeology, and paleolandscapes in ocean and coastal mapping priorities;109
- strengthen collaboration with the private sector to advance innovative development and use of uncrewed systems (e.g., UMS, aerial drones);
- align the types and specifications of data (e.g., bathymetric resolution, time series data, imaging) across sectors;
- manage and store data and make data accessible and usable;
- engage the next generation of hydrographers, ocean explorers, and scientists; and
- streamline the permitting process for ocean and coastal mapping activities.110
The 2024 NOMEC Implementation Plan further identified that "limited resources in terms of funding, infrastructure, ships, submersibles and vehicles, and personnel" present challenges for achieving the long-term ocean and coastal mapping goals of the United States.111 Specific to ships, resource considerations associated with ORVs include staffing levels, staff training and expertise, funding, and competing research projects and priorities.112
Which U.S. Ocean and Coastal Waters Are the Least Mapped? Mapping coverage of federal ocean and coastal areas is not evenly distributed across the United States (see Table 1). To help identify where the United States should focus its mapping efforts, the IWG-OCM queries ocean and coastal mapping partners, and those who rely on mapping data, to identify their priority areas. For example, one survey asked NOAA program offices to determine which areas of the areas. For example, one survey asked NOAA program offices to determine which areas of theocean and Great Lakes they needed mapped, and why.ocean and Great Lakes they needed mapped, and why.
determine overlapping mapping interests to determine overlapping mapping interests to
Great Lakes. For example, in the explanatory statement accompanying the Consolidated Great Lakes. For example, in the explanatory statement accompanying the Consolidated
Appropriations Act, 2023 (P.L. 117-328), Congress directed NOAA to use certain funds Appropriations Act, 2023 (P.L. 117-328), Congress directed NOAA to use certain funds
continue coordinating and implementing an interagency mapping, exploration, and continue coordinating and implementing an interagency mapping, exploration, and
Coastal Mapping Efforts?
") Ocean and Coastal Waters of Alaska
comprehensive shoreline and nearshore maps available for much of the rest of the Nationcomprehensive shoreline and nearshore maps available for much of the rest of the Nation
Table 1).
and the Alaska Mapping Executive Committee developed an Alaska coastal mapping strategy.and the Alaska Mapping Executive Committee developed an Alaska coastal mapping strategy.
117 The strategy focuses on terrestrial nearshore and coastal waters that can be mapped with The strategy focuses on terrestrial nearshore and coastal waters that can be mapped with
lidar (aircraft and satellite). The NOMEC Strategy also called for mapping federal ocean water areas off Alaska.118 As previously discussed, in December 2023, the Department of State delineated the outer limits of the U.S. ECS.119 Adding the seabed area of the ECS increased the total U.S. seabed area off Alaska by about 203,100 square nmi, close to a 16% change (Table 1). Seascape Alaska, a regional mapping campaign in collaboration with federal, tribal, state, and nongovernmental partners, has facilitated the sharing of bathymetric data collected by the private sector to help fill NOMEC bathymetric data gaps.120 Lakebeds of the Great Lakes The Great Lakes are the least mapped ocean and coastal areas of the United States
unmapped with modern technology at a 100 m resolution.unmapped with modern technology at a 100 m resolution.
Observing System (GLOS),Observing System (GLOS),
Canada that receives funding from NOAA, many existing bathymetric maps of the Great Lakes Canada that receives funding from NOAA, many existing bathymetric maps of the Great Lakes
were created using old, sparsely collected, or low-resolution data (e.g., water depth measurements were created using old, sparsely collected, or low-resolution data (e.g., water depth measurements
were collected using lead lines dropped off the edges of boats or were collected using lead lines dropped off the edges of boats or using pre-1960 pre-1960
sonar instruments).sonar instruments).
harmonize new and existing (domestic and international) governmental and nongovernmental bathymetric data to create new, higher-resolution maps of the Great Lakes by 2030.124 Some stakeholders have noted that modern bathymetric data are "critical for effective management, research, and innovation, particularly under mounting climate change threats and growing blue economy in the Great Lakes region."125
In the 119th Congress, some Members introduced H.R. 2731, which would direct NOAA to "conduct high-resolution surveying and mapping of the lakebeds of the Great Lakes" and to make the high-resolution map of the Great Lakes and its associated information publicly available no later than 180 days after completing the mapping effort. The bill would authorize $50 million for each of fiscal years 2025 through 2029 to NOAA for such activities.
How Have Congress and the President DirectedFederal Agencies to Support Ocean and Coastal
Mapping Efforts?
Congress has directed multiple federal agencies to support and complete ocean and coastal Congress has directed multiple federal agencies to support and complete ocean and coastal
mapping over several decades. For example, Congress authorized and directed NOAA to carry mapping over several decades. For example, Congress authorized and directed NOAA to carry
out ocean and coastal mapping activities under the Coast and Geodetic Survey Act of 1947 (P.L. out ocean and coastal mapping activities under the Coast and Geodetic Survey Act of 1947 (P.L.
80-737), the Hydrographic Services Improvement Acts (P.L. 105-38480-737), the Hydrographic Services Improvement Acts (P.L. 105-384,
386), and the Ocean and Coastal Mapping Integration Act of 2009 (386), and the Ocean and Coastal Mapping Integration Act of 2009 (Title XII, Part II, Subtitle B, of P.L. 111-11), among other P.L. 111-11), among other
laws.laws.
related to ocean and coastal mapping related to ocean and coastal mapping (Table 3).
authorities authorities
congressional reports and explanatory statements;congressional reports and explanatory statements;
are not listed are not listed
384) has been amended twice (P.L. 107-372 and P.L. 110-386384) has been amended twice (P.L. 107-372 and P.L. 110-386). Federal departments and agencies engage in ocean and coastal mapping activities under both specific and general authorities provided by Congress (Table 4).
Table 3. Chronology of Selected Federal Ocean and
Year
Name
1807
Act of February 10, 1807 (established a precursor to NOAA's Office of Coast Survey)
2 Stat. 413
1870
16 Stat. 369
1879
Organic Act of 1879 (established the U.S. Geological Survey)
20 Stat. 394
1916
Organic Act of 1916 (established the National Park Service)
P.L. 64-235
1938
Federal Food, Drug, and Cosmetic Act
P.L. 75-717
1947
Coast and Geodetic Survey Act of 1947
P.L. 80-737
1950
National Science Foundation Act of 1950
P.L. 81-507
1953
Submerged Lands Act
P.L. 83-31
Outer Continental Shelf Lands Act
P.L. 83-212
1958
National Aeronautics and Space Act of 1958
1966
Soil Surveys Act
National Historic Preservation Act
National Wildlife Refuge System Administration Act
1969
National Environmental Policy Act
1972
Marine Mammal Protection Act
National Marine Sanctuaries Act
P.L. 92-532, Title III
Coastal Zone Management Act
1973
Endangered Species Act
1974
Deepwater Port Act of 1974
1976
Magnuson-Stevens Fishery Conservation and Management Act
1979
Archaeological Resources Protection Act of 1979
1984
Arctic Research and Policy Act of 1984
1986
Emergency Wetlands Resources Act of 1986
Water Resources Development Act of 1986
1987
Great Lakes Shoreline Mapping Act of 1987
P.L. 100-220, Title III, Subtitle B
1990
Oil Pollution Act of 1990
Global Change Research Act of 1990
1996
Sustainable Fisheries Act of 1996
1998
Hydrographic Services Improvement Act
2002
Maritime Transportation Security Act of 2002
2005
Energy Policy Act of 2005
2007
Energy Independence and Security Act
Magnuson-Stevens Fishery Conservation and Management Reauthorization Act of 2007
2009
Omnibus Public Land Management Act
NOAA Undersea Research Program Act of 2009
P.L. 111-11, Title XII, Subtitle A, Part II
P.L. 111-11, Title XII, Subtitle B
Integrated Coastal and Ocean Observation System Act of 2009
P.L. 111-11, Title XII, Subtitle C
2011
National Defense Authorization Act for Fiscal Year 2012
P.L. 112-81, Title III, Subtitle G
2015
2017
Weather Research and Forecasting Innovation Act of 2017
2018
Geospatial Data Act of 2018
P.L. 115-254, Title VII, Subtitle F
2020
Digital Coast Act
2022
James M. Inhofe National Defense Authorization Act for Fiscal Year 2023
P.L. 117-263, Division J, Title CIII, and Division H, Title LXXXI, §8110
2025
Thomas R. Carper Water Resources Development Act of 2024
P.L. 118-272, Division A, Title I
about/mandates.htmlabout/mandates.html
passed before 2017 were in part identified from a list provided on the website of the Interagency Working passed before 2017 were in part identified from a list provided on the website of the Interagency Working
Group on Ocean and Coastal Mapping.Group on Ocean and Coastal Mapping.
federal ocean and coastal mapping.federal ocean and coastal mapping.129 These actions include E.O. 13547, These actions include E.O. 13547,
Ocean, Our Coasts, and the Great Lakes;Ocean, Our Coasts, and the Great Lakes;
Reliable Supplies of Critical MineralsReliable Supplies of Critical Minerals
Security, and Environmental Interests of the United StatesSecurity, and Environmental Interests of the United States
Department
and Agency
Summary of Mapping Activities
Department of Agriculture
Natural Resources Conservation Service (NRCS)
U.S. Forest Service (FS)
FS works with the USGS to create topographic mapping products of U.S. surface waters, including estuaries (i.e., where rivers meet the sea).
Department of Commerce
National Oceanic and Atmospheric Administration (NOAA)*
private sector to develop mapping standards and private sector to develop mapping standards and
techniques, manage data, and implement projects.techniques, manage data, and implement projects.
Department of Defense
National Geospatial-Intelligence Agency (NGA)*
NGA provides mapping resources for coastal flood hazard analysis.
U.S. Army Corps of Engineers (USACE)*
U.S. coastlines about every five years in support of U.S. coastlines about every five years in support of
its civil works activities, including for the purposes its civil works activities, including for the purposes
collaboration is known as the Joint Airborne Lidar Bathymetry is known as the Joint Airborne Lidar Bathymetry
U.S. Navy*
hydrographic, bathymetric, geophysical, and hydrographic, bathymetric, geophysical, and
acoustic data acoustic data worldwide to provide the warfighter to provide the warfighter with knowledge knowledge
maps and characterizes the seafloor and water maps and characterizes the seafloor and water
column in support of naval missions and for some column in support of naval missions and for some
civilian purposes.civilian purposes.
Department of Homeland Security
Federal Emergency Management Agency (FEMA)*
to produce Flood Insurance Rate Maps and other to produce Flood Insurance Rate Maps and other
agencies, states, local communities, nonprofits, agencies, states, local communities, nonprofits,
academic institutions, and the private sector.academic institutions, and the private sector.
U.S. Coast Guard (USCG)*
navigation signals, on U.S. waterways.navigation signals, on U.S. waterways.
Department of State
Bureau of Oceans and International Environmental and Scientific Affairs
The Office of Ocean and Polar Affairs facilitates diplomatic marine scientific research consent for U.S. scientists to conduct research cruises, including mapping efforts, in certain coastal countries, while allowing some foreign scientists to conduct research in U.S. waters.
Department of the Interior
Bureau of Ocean Energy Management (BOEM)*
part of its management of offshore energy and part of its management of offshore energy and
mineral developmentmineral development in federal waters. The data inform resource . The data inform resource
assessments, site characterization, and assessments, site characterization, and
BOEM also BOEM also
geological and geophysical survey data, from geological and geophysical survey data, from
offshore permittees and lessees.offshore permittees and lessees.
National Park Service (NPS)*
parks and engages in benthic habitat mapping at parks and engages in benthic habitat mapping at
government agencies and universities to map government agencies and universities to map
submerged habitat in parks.submerged habitat in parks.
U.S. Fish and Wildlife Service (FWS)*
manage resources within the U.S. marine and manage resources within the U.S. marine and
coastal zone, including Marine National coastal zone, including Marine National
the National Wetlands Inventory, which provides the National Wetlands Inventory, which provides
information on the extent of wetland and information on the extent of wetland and
submerged aquatic vegetation habitats within the submerged aquatic vegetation habitats within the
U.S. coastal zone.U.S. coastal zone.
U.S. Geological Survey (USGS)*
coastal mapping data for geologic, mineral, and coastal mapping data for geologic, mineral, and
hazard-related assessments. The USGS Coastal hazard-related assessments. The USGS Coastal
National Elevation Database develops integrated National Elevation Database develops integrated
Independent
Environmental Protection Agency (EPA)*
application comprising over 500 mapsapplication comprising over 500 maps
maps are for the onshore continental United maps are for the onshore continental United
National Aeronautics and Space Administration (NASA)*
map and characterize coastal regions as part of its map and characterize coastal regions as part of its
ocean observing and modeling strategy. Satellite ocean observing and modeling strategy. Satellite
Topography (SWOT); and Joint Altimetry Satellite Topography (SWOT); and Joint Altimetry Satellite
National Science Foundation (NSF)*
funding for basic research at academic institutions, funding for basic research at academic institutions,
ocean science-based projects. All ocean mapping ocean science-based projects. All ocean mapping
and characterization data collected under OCE and characterization data collected under OCE
years of years of
Multi-Resolution Topography Data Synthesis Multi-Resolution Topography Data Synthesis
initiative, a compilation of edited multibeam sonar initiative, a compilation of edited multibeam sonar
worldwide.worldwide.
Mapping,Mapping,
NOAA IOCM Coordination Team,NOAA IOCM Coordination Team,
Ocean and Coastal Mapping (IWG-OCM; 33 U.S.C. §3502(b)). Other selected agencies included in the table Ocean and Coastal Mapping (IWG-OCM; 33 U.S.C. §3502(b)). Other selected agencies included in the table
were in part identified from a list provided on the IWG-OCMwere in part identified from a list provided on the IWG-OCM
Ocean-Based Research and Development, by Caitlin Keating-Bitonti., by Caitlin Keating-Bitonti.
support federal ocean and coastal mapping efforts.support federal ocean and coastal mapping efforts.
Ocean Policy Committee, working through its Ocean Science and Technology Subcommittee Ocean Policy Committee, working through its Ocean Science and Technology Subcommittee
(both established under E.O. 13840), to develop a mapping strategy for the U.S. EEZ.(both established under E.O. 13840), to develop a mapping strategy for the U.S. EEZ.
creation of the NOMEC Council.136 The James M. Inhofe National Defense Authorization Act for Fiscal Year 2023 codified the The James M. Inhofe National Defense Authorization Act for Fiscal Year 2023 codified the
NOMEC Council.NOMEC Council.
is cochaired by two senior-level representatives from NOAA and one senior-level representative is cochaired by two senior-level representatives from NOAA and one senior-level representative
Authorization Act for Fiscal Year 2023Authorization Act for Fiscal Year 2023
Science and Technology Subcommittee and to oversee the work of the IWG-OCM and the Science and Technology Subcommittee and to oversee the work of the IWG-OCM and the
agency membership may overlap or differ across the NOMEC Council, IWG-OCM, and the agency membership may overlap or differ across the NOMEC Council, IWG-OCM, and the
IWG-OEC (Table A-1). Some stakeholders contend that, in recent years, federal ocean and coastal mapping efforts have become "well-coordinated" with "no duplication of effort."141
Independently of the goals of the NOMEC Strategy, the Thomas R. Carper Water Resources Development Act of 2024 (Title I, Division A, §1123, of P.L. 118-272) directed USACE to coordinate with the Naval Meteorology and Oceanography Command, NOAA, USGS, and any other relevant federal agencies to carry out a national coastal mapping program.142 How the USACE National Coastal Mapping Program complements or differs from the NOMEC Strategy remains unclear.
Figure 5. Structure of the Interagency Committees, Councils, and Working Groups
Mapping, Exploring, and Characterizing the United States Exclusive Economic Zone, June 2020, p. 7., June 2020, p. 7.
Notes: The Ocean Policy Committee was created Ocean Policy Committee was created
by Executive Order 13840 of June 19, 2018, "Ocean Policy to Advance the Economic, Security, and Environmental Interests of the United StatesOcean Policy to Advance the Economic, Security, and Environmental Interests of the United States
later codified by the later codified by the
Mapping Efforts?
Crowdsourced bathymetric data have Crowdsourced bathymetric data have
coastal waters.coastal waters.
standard navigation instruments (e.g., from vessels engaged in routine maritime operations).standard navigation instruments (e.g., from vessels engaged in routine maritime operations).
These data may These data may
or coastal area needs to be remappedor coastal area needs to be remapped
coastline areas that are difficult for traditional survey vessels to access. NOAA manages coastline areas that are difficult for traditional survey vessels to access. NOAA manages
crowdsourced bathymetric data contributed by several providers, including GLOS.crowdsourced bathymetric data contributed by several providers, including GLOS.
seabed mapping efforts, including Seabed 2030, Lakebed 2030, and the International seabed mapping efforts, including Seabed 2030, Lakebed 2030, and the International
Hydrographic Organization, also use crowdsourced data.Hydrographic Organization, also use crowdsourced data.
Nonfederal partners may contribute bathymetric data and provide resources to help collect data. Nonfederal partners may contribute bathymetric data and provide resources to help collect data.
For example, For example,
energy developers also generate energy developers also generate and share some ocean mapping data some ocean mapping data
government. government.
geophysical survey data to locate resources or inform project siting on the outer continental geophysical survey data to locate resources or inform project siting on the outer continental
shelf.shelf.
implementing regulations, BOEM is authorized to acquire such industry-collected data.implementing regulations, BOEM is authorized to acquire such industry-collected data.
uses the information to support its energy resource assessments, studies of the composition and uses the information to support its energy resource assessments, studies of the composition and
volume of seafloor sediment deposits, identification of geological hazards and benthic habitats, volume of seafloor sediment deposits, identification of geological hazards and benthic habitats,
and other activities.and other activities.
specified time periods (generally ranging from 10 to 50 years), pursuant to statutory provisions.specified time periods (generally ranging from 10 to 50 years), pursuant to statutory provisions.
Are U.S. Goals for Ocean and Coastal Mapping?
ocean and coastal mapping, exploration, and characterization. These partnerships provide ocean and coastal mapping, exploration, and characterization. These partnerships provide
access to a wealth of ocean exploration resources, including ships, autonomous and remotely operated vehicles, expertise, and opportunities for technology testing and development.152 In the James M. Inhofe National Defense Authorization Act for Fiscal Year 2023, Congress directed the NOMEC Council to "promote new and existing partnerships among Federal and State agencies, Indian Tribes, private industry, academia, and non-governmental organizations to conduct or support ocean mapping, exploration, and characterization activities and technological development needs."153 These partnerships may be employed through mechanisms such as federal contracts, competitive grants, and cooperative research and development agreements. For example, NOAA announced the creation of the Brennan Ocean Mapping Matching Fund in 2021 to encourage nonfederal entities to partner with NOAA to acquire more ocean and coastal survey data. In 2022, Congress codified the fund through the James M. Inhofe National Defense Authorization Act for Fiscal Year 2023.154 For FY2025, NOAA received and accepted three proposals for projects through the Brennan Ocean Mapping Matching Fund.155 One project, a partnership between NOAA and the City of Valdez, AK, is to provide high resolution bathymetry and backscatter data of Port Valdez to help city emergency managers understand and prepare for potential impacts of submarine landslides.156 On June 17, 2025, NOAA released a notice requesting partnership proposals for the Brennan Ocean Mapping Matching Fund.157 What Are Some Potential Issues for the 119th Congress?
The 119th Congress may consider a range of issues related to U.S. ocean and coastal mapping. These issues may include
- 1. federal investment in ships;
- 2. the status of the federal workforce and U.S. leadership in ocean science and technology (S&T);
- 3. federal support of public-private partnerships related to ocean and coastal mapping efforts, including the reauthorization of relevant programs; and
- 4. potential national security and economic implications related to ocean and coastal mapping.
The 2024 NOMEC Implementation Plan made recommendations related to some of these issues but stated that its recommendations would be "subject to the Administration's annual budget process and the availability of appropriations."158 More broadly, Congress may weigh trade-offs between furthering the NOMEC Strategy and meeting other federal funding demands.
Federal Investment in ShipsSome scientists have claimed that sustained federal investment, particularly in ships and other maritime research infrastructure, is "essential" and long-term research projects would be "difficult to restart" if interrupted.159 Some experts attribute the United States' relatively high proportion of its seabed mapped compared with other nations to U.S. open-source initiatives, such as the Rolling Deck to Repository (R2R) Program.160 Since 2009, R2R "has supported the acquisition, documentation, preservation, and enhanced usability" of ARF data, including bathymetric data.161 NSF provides approximately 70% of the total operating costs of the ARF.162 The NSF FY2026 budget request proposes a nearly 40% reduction for the ARF, which would provide "partial support" to some ships.163 A potential consideration for Congress is the extent of funding for ocean-based research and exploration within an Administration goal to reduce federal research funding. Congress may choose to decrease federal investment in maritime research infrastructure to prioritize other funding demands. Reductions in federal funding of research activities, including maritime research infrastructure, could inhibit some U.S. ocean policy objectives, such as NOMEC goals and other U.S. ocean exploration objectives (for offshore energy and mineral resources). The bathymetric data to map U.S. ocean and coastal waters may still be acquired despite a reduction in federal funding for new ships, but it may take longer than the time proposed in the NOMEC Strategy.
Federal Workforce and U.S. Leadership in Ocean Science and TechnologyAs discussed above, NOAA and the 2024 NOMEC Implementation Plan identified personnel shortages, among other factors, as potentially limiting the United States' ability to achieve its ocean and coastal mapping goals.164 The Trump Administration has made or proposed changes to federal agency staffing and funding to agencies that conduct or support U.S. ocean and coastal mapping.165 As of April 25, 2025, NOAA's workforce has been reduced by reportedly nearly 20% since the start of the Trump Administration.166 The NOAA FY2026 budget request proposed cutting more than 2,000 (17% of the total workforce) full-time equivalent positions across the agency.167 The extent to which existing staffing reductions align with those proposed in the FY2026 budget request is unknown.
Personnel changes in federal agencies that conduct or support mapping activities may limit the agencies' ability to achieve the NOMEC Strategy goals. For example, the NOAA FY2026 budget request proposed a decrease in staffing levels for some NOAA programs relevant to ocean mapping activities or bathymetric data management (e.g., for NCEI) but proposed maintaining levels for other programs, such as the Office of Ocean Exploration and Research, which prioritizes data collection in unknown deep-sea areas of the U.S. EEZ and contributes to the execution of the NOMEC Implementation Plan.168 Congress may consider potential trade-offs between limitations to ocean mapping capabilities resulting from staff decreases and other priorities, such as reducing the federal budget, that may result from reductions in the federal workforce.
The level of federal support for S&T research may affect the ability to increase the rate or effectiveness of U.S. ocean and coastal mapping efforts. Federally supported advances in S&T have increased the resolution of ocean mapping and the ability to obtain mapping data through different modalities, such as satellites.169 The Trump Administration is reviewing and has proposed reducing federal spending in research and development generally, leading some stakeholders to express concerns about the level of federal support for ocean research.170 For example, in response to the Trump Administration's actions, the University of California San Diego's Scripps Institution of Oceanography decreased its graduate student admissions by half in 2025 compared to 2024.171 The NOMEC Strategy asserted that continued investments in science, technology, engineering, and mathematics "education is critical for ensuring United States leadership and that the next generation of Americans remains competitive in the growing international field of ocean S&T."172 In S.Rept. 118-62, Congress encouraged NOAA "to collaborate with university and industry partners on education and training programs needed to support the demand for advanced bathymetric [lidar] engineers."173
Congress also may consider the need for education and training for UMS as demand and interest in the use of these systems grows.174 Congress could, for example, examine the relationship between undergraduate and graduate student enrollments and whether those student pools will be available to supply the perceived needs for UMS.
Federal Support of Public-Private PartnershipsCongress continues to debate the degree to which the federal government and the private sector should each contribute to mapping activities and the nature of the partnership. During a hearing of the House Science, Space, and Technology Committee's Subcommittee on Environment in the 119th Congress, one Member expressed his view on the importance of private sector contribution, stressing that "NOAA cannot meet these mapping goals all on its own."175 A witness from the private sector, on the other hand, testified that although NOAA's partnerships with the private sector drove U.S. leadership in ocean science, "there is no scenario where private industry could simply take over."176
Some stakeholders have proposed the use of commercial UMS or commercial data buys from private sector UMS service providers to complement federal coastal and ocean mapping efforts.177 As previously discussed, government-owned UMS may be more cost effective than data buys for ocean mapping activities.178 Congress may choose to request or require NOAA to complete a cost estimate with full costs for the agency to
- develop and operate its own ORVs and UMS;
- contract with private UMS operators; and
- purchase commercial data from private sector UMS service providers for U.S. ocean and coastal mapping objectives.
A cost estimate for these different options may elucidate how to allocate federal resources for mapping activities.
In the 119th Congress, some Members have proposed directing federal agencies to coordinate with nonfederal partners to achieve certain mapping objectives. The NOMEC Council had recommended the "expansion of public-private partnerships" to quicken the pace of U.S. ocean and coastal mapping.179 The Great Lakes Mapping Act of 2025 (H.R. 2731) would direct NOAA to partner with the GLOS Lakebed 2030 initiative and would authorize appropriations of $250 million over five years to carry out the mapping efforts. In addition, H.R. 2294 and S. 2126 in the 119th Congress would reauthorize the Integrated Coastal and Ocean Observation System Act of 2009 (Title XII, Subtitle C, of P.L. 111-11), which established the U.S. Integrated Ocean Observing System (IOOS). The U.S. IOOS manages public-private partnerships and oversees the 11 IOOS regional associations, including GLOS, among other ocean observation responsibilities. Congress also may evaluate the work and progress of existing partnership programs aimed at collecting and analyzing new bathymetric data to determine the effectiveness of these partnerships at mapping unmapped areas of U.S. ocean and coastal waters.Public-private partnerships include contracts between federal agencies and private companies, and stakeholders have raised concerns that contracting with the federal government is complicated, requiring the involvement of legal experts.180 Congressional oversight may determine whether—and, if so, the extent to which—contracting mechanisms are deterring private companies from partnering with federal agencies on ocean and coastal mapping initiatives.
U.S. National Security and Economic InterestCongress may consider any potential U.S. national security and/or economic implications related to not meeting the NOMEC Strategy mapping goals within a certain time frame. For example, U.S. ocean mapping, exploration, and characterization contribute to the identification of offshore energy and mineral resources, which may contribute to national security and economic prosperity.181 U.S. ocean and coastal mapping also provides greater understanding of living marine resources and their habitats, which might lead to better management of said resources. As an example, benthic habitat mapping conducted by NOAA's National Marine Fisheries Service and partners helps identify essential fish habitats.
Some Members in the 119th Congress have expressed concerns over how, in one Member's words, the People's Republic of China (PRC, or China) is "supercharging its ocean mapping and drilling enterprise."182 They call attention to how detailed seafloor mapping by foreign adversaries may present national security concerns as these data have numerous applications, including for military use. PRC research ships are equipped with sonar for collecting bathymetric data or are capable of deploying UMS.183 Ocean mapping activities could enhance China's undersea and seabed warfare capabilities by supporting, among other things,- operations by China's submarines and uncrewed underwater vehicles (UUVs),
- operations by China to counter U.S. or other militaries' submarines and UUVs,
- operations by China to defend its undersea cables, and
- operations by China to tap into or cut others' undersea cables.
From 2022 to 2024, the PRC expanded the geographic range of its ocean research ships from waters primarily close to its coast into the Western Pacific.184 Some stakeholders contend that the expanded range of PRC research ships includes areas of potential interest to China's military, such as areas near Taiwan or the United States (i.e., Guam, a U.S. territory that hosts U.S. military forces).185 China's expanded research fleet could provide China an advantage in competing with the United States in the maritime domain by enhancing China's seabed mining operations or fishing operations. Congress may consider what the appropriate level of investment in ocean and coastal mapping, including investment in ORVs, might be given the current comparative advantage China possesses.
Some stakeholders may contend that the implementation of E.O.s or legislation would help the United States better compete with the PRC in ocean exploration and mapping. For example, H.R. 2556 in the 119th Congress would aim to enhance national security and energy independence through offshore energy resource assessment and mapping. The bill would direct the Secretary of Energy, the Secretary of the Interior, and the Secretary of State, in partnership with NSF, NOAA, the Office of Naval Research, and other relevant federal agencies, to utilize any existing maritime vessels and other mapping technologies to identify U.S. transboundary hydrocarbon reservoirs for future exploration, development, and production, among other tasks.186 As another example, E.O. 14154, "Unleashing American Energy," and E.O. 14285, "Unleashing America's Offshore Critical Minerals and Resources," prioritized mapping of federal lands, which include the outer continental shelf, to identify critical mineral deposits, citing economic and national security implications.187 In the 119th Congress, H.R. 3803 and H.R. 4018 would codify and adapt E.O. 14285. For example, H.R. 3803 would direct the Secretary of Commerce, in consultation with other federal agencies, to develop a plan to map priority areas of the seabed with abundant or accessible resources, and H.R. 4018 would direct the Secretary of the Interior to do so.
Appendix. Over 20 federal agencies, departments, and offices participate in aspects of ocean and coastal Over 20 federal agencies, departments, and offices participate in aspects of ocean and coastalmapping, exploration, or characterization. Federal agency membership may overlap or differ mapping, exploration, or characterization. Federal agency membership may overlap or differ
across the National Ocean Mapping, Exploration, and Characterization (NOMEC) Council, across the National Ocean Mapping, Exploration, and Characterization (NOMEC) Council,
Interagency Working Group on Ocean and Coastal Mapping (IWG-OCM), and Interagency Interagency Working Group on Ocean and Coastal Mapping (IWG-OCM), and Interagency
Working Group on Ocean Exploration and Characterization (IWG-OEC). (Working Group on Ocean Exploration and Characterization (IWG-OEC). (See Table A-1.
) Table A-1. Selected Federal Departments, Agencies, and Offices Involved in U.S.
Coordination Body Membership
Bureau of Ocean Energy Management
X
X*
X
Bureau of Safety and Environmental Enforcement
X
—
—
Department of Defense
X
—
—
Department of Energy
—
X
X
Department of State
—
X
—
—
X*
—
X
—
—
—
X*
—
—
X*
—
X
X*
X
National Geospatial-Intelligence Agency
—
X*
—
X
X*
X
National Park Service
—
X
—
National Science Foundation
X
X*
X
Natural Resources Conservation Service
—
X
—
Office of the Secretary of Defense
—
—
X
U.S. Arctic Research Commission
—
X
—
U.S. Army Corps of Engineers
—
X*
—
U.S. Coast Guard
X
X*
—
U.S. Fish and Wildlife Service
—
X
—
—
—
X
U.S. Forest Service
—
X
—
U.S. Geological Survey
X
X*
X
U.S. Navy
—
X*
X
White House Office of Management and Budget
X
—
X
White House Office of Science and Technology Policy
X
—
X
White House Office of the Director of National Intelligence
X
X
X
Source: Congressional Research Service.Congressional Research Service.
Notes: IWG-OCM = Interagency Working Group on Ocean and Coastal Mapping; IWG-OEC = Interagency IWG-OCM = Interagency Working Group on Ocean and Coastal Mapping; IWG-OEC = Interagency
Working Group on Ocean Exploration and CharacterizationWorking Group on Ocean Exploration and Characterization
Exploration, and Characterization. Exploration, and Characterization.
Anna Normand, Specialist in Natural Resources Policy, and Tony Marshak, Analyst in Natural Resources Policy, contributed to the 2025 update of this report.
Footnotes
Statutory language uses both "data and information" in defining the term mapping (33 U.S.C. §3407(3)). See "What Is Ocean and Coastal Mapping?" below.
Ocean Policy Committee, Ocean Science and Technology Subcommittee (OST), National Ocean Mapping, Exploration, and Characterization (NOMEC) Council, Implementation Plan for the National Strategy for Ocean Mapping, Exploring, and Characterizing the United States Exclusive Economic Zone, January 2021, p. 3 (hereinafter NOMEC Council, Implementation Plan); and Ocean Policy Committee, OST, NOMEC Council, 2024 Implementation Plan Update for the National Strategy for Ocean Mapping, Exploring, and Characterizing the United States Exclusive Economic Zone, December 2024, p. 4 (hereinafter NOMEC Council, 2024 Implementation Plan Update).
The Ocean Policy Committee was created by Executive Order (E.O.) 13840 of June 19, 2018, "Ocean Policy to Advance the Economic, Security, and Environmental Interests of the United States," 86 Federal Register 29431, June 22, 2018. The Ocean Policy Committee was codified by the William M. (Mac) Thornberry National Defense Authorization Act for Fiscal Year 2021 (Title X, Subtitle E, of P.L. 116-283; 10 U.S.C. §8932 (a)). For more information on the structure of the Office of Science and Technology Policy (OSTP), see CRS Report R47410, The Office of Science and Technology Policy (OSTP): Overview and Issues for Congress, by Emily G. Blevins.
Ocean Policy Committee, OST, National Strategy for Mapping, Exploring, and Characterizing the United States Exclusive Economic Zone, June 9, 2020, p. 9 (hereinafter NOMEC Strategy, 2020).
NOMEC Council, 2024 Implementation Plan Update, p. 1.
NOMEC Council, 2024 Implementation Plan Update, p. iii.
E.O. 14154 of January 20, 2025, "Unleashing American Energy," 90 Federal Register 8353, January 29, 2025 (hereinafter E.O. 14154, "Unleashing American Energy").
E.O. 14285 of April 24, 2025, "Unleashing America's Offshore Critical Minerals and Resources," 90 Federal Register 17735, April 29, 2025 (hereinafter E.O. 14285, "Unleashing America's Offshore Critical Minerals and Resources").
U.S. Department of the Interior (DOI), Secretarial Order (S.O.) 3418, "Unleashing American Energy," February 3, 2025 (hereinafter S.O. 3418, "Unleashing American Energy").
Most U.S. states have jurisdiction over an area extending 3 nautical miles (nmi) from their officially recognized coasts, under the Submerged Lands Act (43 U.S.C. §§1301 et seq.). Two states (Florida, along its Gulf coast, and Texas) have been held by the Supreme Court to have boundaries extending 9 nmi from shore. The Commonwealth of Puerto Rico also has jurisdiction over an area of 9 nmi from its coast, whereas other U.S. territories have jurisdiction over areas 3 nmi from their coasts.
Presidential Proclamation 5030 of March 10, 1983, "Exclusive Economic Zone of the United States of America," 48 Federal Register 10605, March 14, 1983.
Department of State, "Continental Shelf and Maritime Boundaries; Notice of Limits," 88 Federal Register 88470, December 21, 2023.
The 2021 NOMEC Implementation Plan; NOMEC Strategy, 2020; and 2019 presidential memorandum on ocean mapping of the U.S. EEZ referred to mapping of the U.S. EEZ, which included the seabed beneath U.S. coastal-state-controlled waters and the U.S. EEZ and the lakebeds of the Great Lakes. The 2024 NOMEC Implementation Plan outlined revised actions, such as the inclusion of the U.S. extended continental shelf. See NOMEC Council, 2024 Implementation Plan Update, p. 2.
Congress included the Great Lakes as part of a federal ocean and coastal mapping plan (33 U.S.C. §3501).
33 U.S.C. §3507(5).
33 U.S.C. §3407(3). James M. Inhofe National Defense Authorization Act for Fiscal Year 2023 (P.L. 117-263), Division J, Title CIII, modified Section 12001 of the Omnibus Public Land Management Act of 2009 (33 U.S.C. §3401) by inserting this definition of mapping. It also applies the definition to map.
NOAA, "What Is Bathymetry?," https://oceanservice.noaa.gov/facts/bathymetry.html.
NOAA, "How Does Backscatter Help Us Understand the Sea Floor?," https://oceanservice.noaa.gov/facts/backscatter.html.
For more information, see "How Are Ocean and Coastal Waters Mapped?" below.
NOMEC Council, Implementation Plan, p. 7; and NOMEC Council, 2024 Implementation Plan Update, p. 18.
33 U.S.C. §3407(2).
Division J, Title CIII, §10301(6), of P.L. 117-263.
NOMEC Council, Implementation Plan, p. 3. For more on the NOMEC Council, see "How Have Congress and the President Directed Federal Agencies to Support Ocean and Coastal Mapping Efforts?"
Bureau of Ocean Energy Management (BOEM), "BOEM Mapping Resources," https://www.boem.gov/environment/boem-mapping-resources. For more information on applications of bathymetric data related to nonliving natural resources, see CRS Report R47021, Federal Involvement in Ocean-Based Research and Development, by Caitlin Keating-Bitonti.
NOAA, "Why Map the Seafloor? To Keep Us—and Natural Resources—Safe," https://oceanexplorer.noaa.gov/world-oceans-day-2015/why-map-the-seafloor-to-keep-us-and-natural-resources-safe.html (hereinafter NOAA, "Why Map the Seafloor? To Keep Us—and Natural Resources—Safe").
The Great Lakes Observing System (GLOS), Lakebed 2030: Modern Mapping of the Great Lakes, https://glos.org/wp-content/uploads/2021/12/Lakebed-2030-Poster.pdf (hereinafter GLOS, Lakebed 2030: Modern Mapping of the Great Lakes).
NOAA, "Why Map the Seafloor? To Keep Us—and Natural Resources—Safe."
For more information about the extent of the U.S. continental shelf, see CRS Report R47912, Outer Limits of the U.S. Extended Continental Shelf: Background and Issues for Congress, by Caitlin Keating-Bitonti.
U.S. Geological Survey (USGS), "Marine Geohazards," https://www.usgs.gov/science/science-explorer/ocean/marine-geohazards.
NOAA, "How Is Bathymetric Data Used?," https://oceanservice.noaa.gov/facts/bathyuses.html. The Magnuson-Stevens Fishery Conservation and Management Act, under 16 U.S.C. §1802(10), defines essential fish habitat as "those waters and substrate necessary to fish for spawning, breeding, feeding or growth to maturity" (for more information, see CRS Report R47645, U.S. Regional Fishery Management Councils, by Anthony R. Marshak).
NOMEC Strategy, 2020, p. 2.
The update replaced "U.S. EEZ" with "U.S. waters" to reflect the U.S. ECS. NOMEC Council, 2024 Implementation Plan Update, p. 2.
U.S. exploration and characterization activities are focused on waters 40 meters and deeper. NOMEC Council, Implementation Plan, p. 15.
NOMEC Strategy, 2020, p. 9.
NOMEC Strategy, 2020, p. 9.
NOMEC Strategy, 2020, p. 9.
NOMEC Strategy, 2020, p. 9.
NOMEC Council, 2024 Implementation Plan Update, p. 1.
Post-1960 refers to when the U.S. Navy declassified multibeam sonar technology for civil use (see Hydro International, "A Note on Fifty Years of Multi-Beam," May 22, 2013, https://www.hydro-international.com/content/article/a-note-on-fifty-years-of-multi-beam).
NOAA, "U.S. Bathymetric Coverage and Gap Analysis," https://iocm.noaa.gov/seabed-2030-bathymetry.html (hereinafter NOAA, "U.S. Bathymetric Coverage and Gap Analysis"); and NOAA, "United States Bathymetric Gap Analysis," https://noaa.maps.arcgis.com/home/item.html?id=4d7d925fc96d47d9ace970dd5040df0a.
Presidential memorandum on ocean mapping of the U.S. EEZ, 2019.
The first annual progress report of unmapped U.S. waters was published in March 2020. NOAA, Progress Report: Unmapped U.S. Waters, March 2020, https://iocm.noaa.gov/seabed-2030/mapping-progress-report2020.pdf.
NOAA, "U.S. Bathymetric Coverage and Gap Analysis."
NOAA, 2025 Progress Report: Unmapped U.S. Waters, March 2025, https://iocm.noaa.gov/documents/mapping-progress-report2025.pdf (hereinafter NOAA, 2025 Progress Report: Unmapped U.S. Waters).
NOAA, "Status of Seafloor Mapping Within U.S. Waters," https://iocm.noaa.gov/seabed-2030-status.html.
NOAA considers a specific area (i.e., a grid cell measuring 100 x 100 meters) of the seafloor minimally mapped if the area contains at least one sonar or lidar measurement. NOAA refers to a grid cell that has three or more measurements as better mapped. NOAA, "U.S. Bathymetric Coverage and Gap Analysis."
Department of State, "Continental Shelf and Maritime Boundaries; Notice of Limits," 88 Federal Register 88470, December 21, 2023.
NOMEC Council, 2024 Implementation Plan Update, p. 1.
Department of State, The Outer Limits of the Extended Continental Shelf of the United States of America: Executive Summary, December 19, 2023, pp. 11-12.
NOMEC Council, 2024 Implementation Plan Update, p. 4.
For more information about oceanographic data and approaches for ocean mapping and characterization, see CRS Report R47021, Federal Involvement in Ocean-Based Research and Development, by Caitlin Keating-Bitonti.
See NOMEC Council, 2024 Implementation Plan Update, p. 11.
IWG-OCM, Standard Ocean Mapping Protocol, pp. 43-44.
Bob Embley, "Sea Floor Mapping," NOAA, Pacific Marine Environmental Laboratory, https://oceanexplorer.noaa.gov/explorations/lewis_clark01/background/seafloormapping/seafloormapping.html.
NOAA, "Ecological Classification – CMECS [Coastal and Marine Ecological Classification Standard]," https://iocm.noaa.gov/standards/cmecs-home.html.
Shallow coastal waters may present hazards for ships and, in high latitude regions, coastal waters are more prone to freezing, thereby limiting data collection to ice-free seasons.
Imaging and environment-monitoring instruments on commercial satellites, such as the Maxar satellite series, can be applied to coastal water mapping projects (Kyle Goodrich et al., "The Power of Bathymetry Now Available in SecureWatch," Maxar, April 8, 2020, https://blog.maxar.com/earth-intelligence/2020/the-power-of-bathymetry-now-available-in-securewatch). Some federally owned satellites (e.g., Landsat 8, Landsat 9, and ICESat-2) are also equipped with lidar technology that can be used to map coastal waters (USGS, "Satellite-Derived Bathymetry," August 12, 2019, https://www.usgs.gov/special-topics/coastal-national-elevation-database-%28coned%29-applications-project/science/satellite#overview; and National Aeronautics and Space Administration [NASA], "Sounding the Seafloor with Light," https://earthobservatory.nasa.gov/images/148246/sounding-the-seafloor-with-light [hereinafter NASA, "Sounding the Seafloor with Light"]). For more information, see CRS Report R46560, Landsat 9 and the Future of the Sustainable Land Imaging Program, by Anna E. Normand).
IWG-OCM, Standard Ocean Mapping Protocol, p. 45.
IWG-OCM, Standard Ocean Mapping Protocol, p. 45.
USACE, remote briefing to CRS, April 25, 2023.
NASA, "Global Ecosystem Dynamics Investigation (GEDI)," https://www.earthdata.nasa.gov/sensors/gedi.
NASA generally flies prototype instruments, which may include lidar, on aircraft before they are deployed into space on satellites (NASA, remote briefing to CRS, May 24, 2023).
NASA, remote briefing to CRS, May 24, 2023.
For example, while NOAA provides funding for research and mission input for Exploration Vessel (E/V) Nautilus, an exploration vessel owned and operated by the Ocean Exploration Trust, NOAA does not directly task or assign missions to this vessel (CRS email correspondence with NOAA, Congressional Affairs Specialist, Office of Legislative and Intergovernmental [OLIA] Affairs, April 18, 2023). E/V Nautilus is equipped with multibeam sonar that has been used to map the seafloor (NOAA, "Exploration Vessel Nautilus," https://oceanexplorer.noaa.gov/technology/vessels/nautilus/nautilus.html).
NOAA, The NOAA Fleet Plan: Building NOAA's 21st Century Fleet, October 31, 2016, pp. 24, 27.
University-National Oceanographic Laboratory System (UNOLS), "The U.S. Academic Research Fleet," https://www.unols.org/us-academic-research-fleet-0 (hereinafter UNOLS, "The U.S. Academic Research Fleet").
NOAA, The NOAA Fleet Plan: Building NOAA's 21st Century Fleet, October 31, 2016, pp. 3 and 7. The NOAA FY2026 budget request referenced the 2016 NOAA Fleet Plan in the context of vessel recapitalization and construction (NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-21).
NOAA, "Contract for 2 NOAA Research Ships Awarded to Thoma-Sea Marine Constructors, LLC.," July 6, 2023, https://www.noaa.gov/news-release/contract-for-2-noaa-research-ships-awarded-to-thoma-sea-marine-constructors-llc (hereinafter NOAA, "Contract for 2 NOAA Research Ships"); NOAA, "Biden-Harris Administration Announces $2.6 Billion Framework Through Investing in America Agenda to Protect Coastal Communities and Restore Marine Resources," June 6, 2023, https://www.noaa.gov/news-releases/noaa-ira-framework-2023; and NOAA, "Surveyor and Navigator, NOAA's Newest Research Ships," September 27, 2024, https://www.omao.noaa.gov/omao/news-media/article/surveyor-and-navigator-noaa%E2%80%99s-newest-research-ships (hereinafter NOAA, "Surveyor and Navigator").
NOAA, "Contract for 2 NOAA Research Ships"; NOAA, "Shipshape – Winter 2025," https://content.govdelivery.com/accounts/USNOAAOMAO/bulletins/3ce33c2 (hereinafter NOAA, "Shipshape – Winter 2025"); and NOAA, "Surveyor and Navigator."
U.S. Congress, Senate Appropriations Committee, Departments of Commerce and Justice, Science, and Related Agencies Appropriations Bill, 2024, report to accompany S. 2321, 118th Cong., 1st sess., S.Rept. 118-62, July 13, 2023, p. 63 (hereinafter S.Rept. 118-62). The Full-Year Continuing Appropriations and Extensions Act, 2025 (P.L. 119-4), which provided NOAA with funding for FY2025, did not provide direction regarding ocean and coastal mapping. The law also was not accompanied by an explanatory statement or committee reports; thus CRS was not able to identify ocean- and coastal-mapping-specific congressional direction for FY2025. P.L. 119-4 required certain agencies to submit spending plans to Congress with allocation of FY2025 funding information. It is unclear whether the spending plans will be made available to the public.
NOAA Ship Oceanographer is expected to be homeported in Honolulu, HI, and NOAA Ship Discoverer is expected to be homeported in Newport, RI (Maritime Executive, "Construction Begins on NOAA's New Oceanographic Research Ships," June 16, 2022, https://maritime-executive.com/article/construction-begins-on-noaa-s-new-oceanographic-research-ships; and NOAA, Budget Estimate: Fiscal Year 2025, p. OMAO-11). Both vessels are expected to enter service in 2026 (NOAA, "Surveyor and Navigator").
NOAA, "Shipshape – Winter 2025."
CRS email correspondence with NOAA, Congressional Affairs Specialist, Office of Legislative and Intergovernmental Affairs (OLIA), July 25, 2025.
S.Rept. 118-62, p. 58. See footnote 79.
S.Rept. 118-62, p. 58. See footnote 79.
NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-13.
For example, NOAA, Budget Estimates: Fiscal Year 2026, pp. OMAO-13, OMAO-14; written testimony of Earl Childress, Senior Vice President, Chief Commercial Officer, Oceaneering International Inc., House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025, https://republicans-science.house.gov/_cache/files/0/3/037b37df-e30f-4f16-8d70-98f1cde3c8e4/4CF880E27073A5F30FB46EFEC79A3F84F52C2290B89B2492CDC8B1CE336F115B.childress-testimony.pdf (hereinafter written testimony of Earl Childress, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025); and testimony of Shepard Smith, Chief Technology Officer, XOCEAN, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025, https://republicans-science.house.gov/_cache/files/1/7/17fcad09-4f5f-4018-87e4-dba78491f15f/0FE9264F09DA49A348EC671025289AEA24F1A2F7D22610CA72F3EEC2A1345C8B.smith-testimony.pdf (hereinafter written testimony of Shepard Smith, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025). According to NOAA, the term uncrewed marine systems (UMS) means "remotely operated or autonomous craft that can function without an onboard human presence, and that may include associated components such as control and communications. UMS do not include exclusively aerial systems of any kind. UMS include underwater, surface, and hybrid systems (i.e., systems that can operate both on and below the water's surface)." NOAA, NAO 212-19: Uncrewed Marine Systems, January 16, 2025.
Written testimony of Shepard Smith, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
NOAA, NAO 212-19: Uncrewed Marine Systems, January 16, 2025.
NOAA, "2024 Dual DriX Project," https://www.omao.noaa.gov/uncrewed-systems/news-media/article/2024-dual-drix-project. According to the NOAA FY2026 budget request, the NOAA Office of Marine and Aviation Operations acquired two DriX uncrewed surface vehicles in 2023 and 2024.
NOAA, "Uncrewed Systems Operations Center 2024 Accomplishments," January 31, 2025, https://www.omao.noaa.gov/uncrewed-systems/news-media/article/uncrewed-systems-operations-center-2024-accomplishments; written testimony of Shepard Smith, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025; and written testimony of Earl Childress, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
According to NOAA, the agency plans to modify ships to deploy and recover uncrewed systems. NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-19.
E.O. 14269 of April 9, 2025, "Restoring America's Maritime Dominance," 90 Federal Register 15635, April 15, 2025.
NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-21.
33 U.S.C. §3408(i)(2)(I).
33 U.S.C. §3502; and NOAA, "Interagency Working Group - Ocean and Coastal Mapping," https://iocm.noaa.gov/about/iwg-ocm.html. For information about the composition of IWG-OCM, see "How Are Federal Ocean and Coastal Mapping Efforts Coordinated?"
IWG-OCM, Standard Ocean Mapping Protocol, April 2024.
NOMEC Council, 2024 Implementation Plan Update, p. 11.
CRS email correspondence with NOAA, Congressional Affairs Specialist, OLIA, June 15, 2023 (hereinafter CRS email correspondence with NOAA, June 15, 2023). NOAA NCEI is also the repository for bathymetric grids created for the U.S. Extended Continental Shelf Project.
NOMEC Council, 2024 Implementation Plan Update, p. 11.
See, NOAA, "Coastal Topographic LiDAR," https://coast.noaa.gov/digitalcoast/data/coastallidar.html.
NOAA, "U.S. Bathymetric Coverage and Gap Analysis."
CRS email correspondence with NOAA, June 15, 2023.
CRS email correspondence with NOAA, June 15, 2023.
CRS email correspondence with NOAA, June 15, 2023.
Andrew Freedman, "Scoop: NOAA Monthly Media Calls on Climate Change Suspended," Axios, March 13, 2025 (hereinafter Freedman, "Scoop: NOAA Monthly Media Calls on Climate Change Suspended").
Freedman, "Scoop: NOAA Monthly Media Calls on Climate Change Suspended."
NOAA, Budget Estimates: Fiscal Year 2026, p. NESDIS-14.
A paleolandscape is an ancient area of land that may preserve information about how people inhabited, occupied, and used the land. For example, see NOAA, "Paleolandscapes, Paleoecology, and Cultural Heritage on the Southern California Continental Shelf – Geophysical Mapping Phase," https://oceanexplorer.noaa.gov/explorations/21paleolandscapes/welcome.html.
NOMEC Council, Implementation Plan, Appendix A.
NOMEC Council, 2024 Implementation Plan Update, p. 1.
CRS email correspondence with NOAA, Congressional Affairs Specialist, OLIA, April 18, 2023. Funding can impact days-at-sea, a day which a NOAA ship is "underway, under its own power, for greater than one hour, conducting mission operations, training, sea trials, or calibration." See Department of Commerce, "NOAA – Total Funded Days-at-Sea for NOAA Ships," March 6, 2025, https://performance.commerce.gov/KPI-NOAA/NOAA-Total-Funded-Days-At-Sea-for-NOAA-ships/sh92-zaih/about_data.
For example, NOAA, NOAA Nationwide Spatial Priorities Study, NOAA Technical Memorandum NOS CS 46, October 2021.
NOAA, "Spatial Priority Studies," https://iocm.noaa.gov/planning/priorities.html.
Sen. Patrick Leahy, "Regarding H.R. 2617, Consolidated Appropriations Act, 2023," remarks in the Senate, Congressional Record, daily edition, vol. 168 (December 20, 2022), p. S7907.
Presidential memorandum on ocean mapping of the U.S. EEZ, 2019.
The Alaska Mapping Executive Committee (AMEC) is composed of executives from the State of Alaska and 15 federal agencies and departments (AMEC, Alaska Coastal Mapping Strategy: Implementation Plan 2020-2030, June 28, 2022, p. 1).
AMEC, Alaska Coastal Mapping Strategy: Implementation Plan 2020-2030, June 28, 2022., pp. 2, 4.
Department of State, "Continental Shelf and Maritime Boundaries; Notice of Limits," 88 Federal Register 88470, December 21, 2023.
NOMEC Council, 2024 Implementation Plan Update, p. 29; and Seascape Alaska, "Introducing Seascape Alaska," https://storymaps.arcgis.com/stories/094abb14281e4b2489146a3f3e030961.
NOAA, 2025 Progress Report: Unmapped U.S. Waters.
GLOS, "Lakebed 2030." Partners of Lakebed 2030 include GLOS, USGS, NOAA, Northwestern Michigan College, and the Canadian Hydrographic Service.
GLOS, "Lakebed 2030." Some refer to the blue economy as the collective economic value of the resources, uses, and activities of the ocean and coasts. For more information about the blue economy, see CRS In Focus IF12188, What Is the Blue Economy?, by Caitlin Keating-Bitonti and Eva Lipiec.
CRS email correspondence with NOAA, Congressional Affairs Specialist, OLIA, April 18, 2023.
NOAA, "Integrated Ocean & Coastal Mapping, Mandates and Drivers," https://iocm.noaa.gov/about/mandates.html (hereinafter NOAA, "Integrated Ocean & Coastal Mapping, Mandates and Drivers").
For example, in S.Rept. 118-62, referred to in the explanatory statement accompanying the Consolidated Appropriations Act, 2024 (P.L. 118-42), Congress directed NOAA to use certain funds for the NOAA Center of Excellence for Operational Ocean and Great Lakes Mapping, specifying that the "Center shall work in unison with and leverage existing capabilities, including the Joint Hydrographic Center, and across NOAA line offices, including NOS [National Ocean Service], the Office of Oceanic and Atmospheric Research [OAR], and the Office of Marine and Aviation Operations [OMAO], to support and grow the Nation's deep water, shallow water, and coastal mapping capabilities and data holdings, in partnership with industry."
NOAA, "Integrated Ocean & Coastal Mapping, Mandates and Drivers."
E.O. 13547 of July 19, 2010, "Stewardship of the Ocean, Our Coasts, and the Great Lakes," 75 Federal Register 43021, July 22, 2010.
E.O. 13817 of December 20, 2017, "A Federal Strategy to Ensure Secure and Reliable Supplies of Critical Minerals," 82 Federal Register 60835, December 26, 2017.
E.O. 14285, "Unleashing America's Offshore Critical Minerals and Resources"; E.O. 14154, "Unleashing American Energy"; and S.O. 3418, "Unleashing American Energy."
NOMEC Council, 2024 Implementation Plan Update, p. 7.
Presidential memorandum on ocean mapping of the U.S. EEZ, 2019.
10 U.S.C. §8932(a).
NOMEC Strategy, 2020, p. 6.
33 U.S.C. §3408.
NOAA, "NOMEC Council and Member Agencies," https://www.noaa.gov/nomec/nomec-council-and-member-agencies (hereinafter NOAA, "NOMEC Council and Member Agencies").
A representative from the USGS, a part of DOI, serves as a cochair of the NOMEC Council. NOAA, "NOMEC Council and Member Agencies"; and 33 U.S.C. §3408(e).
33 U.S.C. §3408(h). Division J, Title CIII, of P.L. 117-263, codified the Interagency Working Group on Ocean Exploration and Characterization.
House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
33 U.S.C. §2292a.
NOAA, "Bathymetric Data Viewer."
USACE, remote briefing to CRS, April 25, 2023.
For more information, see BOEM, "Geological and Geophysical (G&G) Surveys," fact sheet, November 2018, https://www.boem.gov/sites/default/files/about-boem/BOEM-Regions/Atlantic-Region/GandG-Overview.pdf.
43 U.S.C. §1352, 30 C.F.R. Part 551, 30 C.F.R. §§580.40-580.73, and 30 C.F.R. §§585.610-585.611.
See, for example, BOEM, Gulf of Mexico OCS Proposed Geological and Geophysical Activities: Final Programmatic Environmental Impact Statement, August 2017, chapter 1, p. 4, https://www.boem.gov/sites/default/files/environmental-stewardship/Environmental-Assessment/NEPA/BOEM-2017-051-v1.pdf.
43 U.S.C. §1352(c); 30 C.F.R. §§551.14, 580.71.
NOMEC Strategy, 2020, p. 17.
NOMEC Strategy, 2020, pp. 17-18.
33 U.S.C. §3408(i)(2)(G).
33 U.S.C. §3504a.
NOMEC Council, 2024 Implementation Plan Update, p. 29.
NOAA, "Notice of Brennan Ocean Mapping Fund Opportunity for Ocean and Coastal Mapping and Request for Partnership Proposals," 90 Federal Register 25588, June 17, 2025.
NOMEC Council, 2024 Implementation Plan Update, p. iii.
Testimony of Margaret Leinen, Vice Chancellor Marine Sciences, Director, Scripps Institution of Oceanography, University of California San Diego, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
Yakufu Niyazi et al., "Status of Global Seafloor Mapping Effort and Priority Areas for Future Mapping," Frontiers in Marine Science, vol. 12 (May 30, 2025), p. 12.
Rolling Deck to Repository (R2R) Program, "Mission & R2R Team," https://www.rvdata.us/about/mission-and-team.
NSF, FY2026 Budget Request to Congress, May 30, 2025, pp. Facilities – 3 and Facilities – 5.
See "What Are Some Challenges to Ocean and Coastal Water Mapping Efforts?" above.
For example, Daniel Cusick, "More than 1,000 NOAA Staffers Take Early Retirement," April 25, 2025, E&E News; and Raymond Zhong et al., "NOAA Said to Be Planning to Shrink Staff by 20%," New York Times, March 8, 2025.
NOAA, Budget Estimates: Fiscal Year 2026, p. Control Table-14. For more information about NOAA's organization, see CRS Report R47636, National Oceanic and Atmospheric Administration (NOAA): Organization Overview and Issues for Congress, by Eva Lipiec.
NOAA, Budget Estimates: Fiscal Year 2026, pp. NOAA-15 and NOS-9. NOAA's FY2026 budget request proposes transitioning the Office of Ocean Exploration and Research from the Oceanic and Atmospheric Research line office to the National Oceanic Service line office.
See "How Are Ocean and Coastal Waters Mapped?" above.
For example, remarks from Rep. Gabe Amo, Ranking Member of the Subcommittee on Environment, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
For example, testimony of Margaret Leinen and Shephard Smith, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
NOMEC Strategy, 2020, p. 19.
S.Rept. 118-62, p. 30. See footnote 79.
For example, NOAA, "About NOAA Uncrewed Systems Operations," https://www.omao.noaa.gov/uncrewed-systems/about-noaa-uncrewed-systems-operations.
U.S. Congress, House Committee on Science, Space, and Technology, "Opening Statement of Environment Subcommittee Chairman Scott Franklin at To the Depths, and Beyond: Examining Blue Economy Technologies," March 26, 2025, https://science.house.gov/2025/3/opening-statement-of-environment-subcommittee-chairman-scott-franklin-on.
Testimony of Tim Janssen, Chief Executive Officer, Sofar Ocean Technologies, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
For example, H.Rept. 118-582, accompanying the Commerce, Justice, Science, and Related Agencies Appropriations Bill, 2025 (H.R. 9026); written testimony of Earl Childress, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025; testimony of Shepard Smith, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025; and NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-11.
See "How Do Oceanographic Research Vessels and Uncrewed Marine Systems Contribute to U.S. Mapping Capabilities?" NOAA, Budget Estimates: Fiscal Year 2026, p. OMAO-13.
NOMEC Council, 2024 Implementation Plan Update, p. 1.
Written testimony of Earl Childress, Senior Vice President, Chief Commercial Officer, Oceaneering International Inc., House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025; and testimony of Tim Janssen, Chief Executive Officer, Sofar Ocean Technologies, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
For example, according to NOAA, the ocean mapping efforts of the Office of Ocean Exploration and Research "guide[] site-selection for U.S. applicants in support of E.O. 14285 'Unleashing America's Offshore Critical Minerals and Resources.'" NOAA, Budget Estimates: Fiscal Year 2026, p. NOS-6.
Remarks from Rep. Brian Babin, Chairman of the Committee on Science, Space, and Technology, House Committee on Science, Space, and Technology, Subcommittee on Environment, To the Depths, and Beyond: Examining Blue Economy Technologies, hearing, March 26, 2025.
Chris Buckley, "China Surveys Seabeds Where Naval Rivals May One Day Clash," New York Times, July 10, 2025, (hereinafter Buckley, "China Surveys Seabeds Where Naval Rivals May One Day Clash"); and Austin Ramzy, "China Is Mapping the Seabed to Unlock New Edge in Warfare," Wall Street Journal, March 12, 2025 (hereinafter Ramzy, "China Is Mapping the Seabed to Unlock New Edge in Warfare").
Buckley, "China Surveys Seabeds Where Naval Rivals May One Day Clash."
Buckley, "China Surveys Seabeds Where Naval Rivals May One Day Clash"; Ramzy, "China Is Mapping the Seabed to Unlock New Edge in Warfare"; and "China Is Itching to Mine the Ocean Floor," Economist, July 28, 2024.
See H.R. 2556, §2, 119th Congress.
For more information about offshore critical minerals and the federal government's role in identifying such resources within U.S. waters, see CRS Report R48302, Critical Minerals on the U.S. Outer Continental Shelf: The Bureau of Ocean Energy Management's Role and Issues for Congress, by Caitlin Keating-Bitonti and Laura B. Comay.