A Special Report by the Committee on Oceanography DATA LIBRAR* Wi CODS HOLE OCEANOGRAPHIC INSTITUTIO* A Review of " OCEANOGRAPHY 1960 to 1970" and Comments on the Interagency Committee on Oceanography Fiscal Year 1962 Program August 1961 A Special Report by the Committee on Oceanography DATA LIBRAR* WiCODS HOLE OCEANOGRAPHIC INSTITUTIO* se A Review of " OCEANOGRAPHY 1960 to 1970" and Comments on the Interagency Committee on Oceanography Fiscal Year 1962 Program August 1961 ¢ ¢hOhEOO TOEO oO WAL 1OHM/18lW II III DATA LIBRARY WOODS HOLE OCEANOGRAPHIC INSTITUTION TABLE OF CONTENTS Introduction Review of Committee Reports Education and Manpower New Ships Shore Facilities Ocean-Wide Survey Engineering Needs radioactivity Ocean Resources International Cooperation Basic Research ° TAM OQw > _ . Legislative Activities Other Items A. Medical Aspects B. The National Oceanographic Data Center Interagency Committee on Oceanography Program Department of Defense Department of Commerce Depaitment of Interior National Science Foundation Atomic Energy Commission Health, Education and Welfare Treasury Depariment ANMy OW > Page 39 35 36 38 40 43 44 44 45 amsat rari) asjoeqea isstbabi ‘ - 30D: ste obdlqerponceoO innoeli adT , ‘oo mazporl yaqerpanse0O Ho sertimmoD yonepsiidl ” senele to inomnmaged A) eoremmeD ic tinemrsqad «4.8 = itoint do inawhdqed «Oo “galiabauc’s eonnioa Ieaciteu =. poleetmme®? yroeng.olseiA .f aietiew bas nolisovhd ,diissH .% jnomnriedel yeassoT .2 REVIEW OF "“OCEALIOGRAPHY 1960 TO 1970" ANID COMMELITS Ol] THE INTERAGENCY COMMITTEE Oi] OCEANOGRAPHY FISCAL YEAR 1962 PROGRAM is INTRODUCTION The first chapter of the Committee on Oceanography report Oceanography 1960 to 1970 - "Introduction and Summary of Recom- mendations" was presented to the government agency sponsors, the scientific community and the Congress in February 1959. During the past two and one-half years chapters on basic re- search, resources, defense applications, artificial radioactiv- ity, new sesearch ships, engineering needs, education and man- power, occan-wide surveys, international cooperation and a summary o£ the status of U. S. oceanography in 1958 have been prepared and widely distributed. The scientific community, the government agencies and the Congress have all reacted to these reports, and a great deal of public interest in oceanography has developed. Bills on ocean- ography have been introduced in the House and the Senate. Con- gressional hearings have been held, and several Senators and Congressnen have pluyed an active role in investigating the country's needs in the marine sciences and in encouraging cooperative planning and budgeting by the Federal agencies. At the same time, we have seen the development of a new way Of coordinating and planning the support of an area cutting across many avency iines. The Interagency Committee on Ocean- ography of the Federal Council on Science and Technology, under the able chairmanship of Secretary Wakelin, has been instrumental in developing a strong core of responsible leadership and effective coordination of the various agency programs in ocean- ography. At this time, it seems both appropriate and useful to review our two and one-half year old Report and to make specific comments on the recent report of the ICO, "United States National Oceanographic Program, FY 1962." Since these two reports are organized differently we have not tried to review them both at once. Because both reports are concerned with a national effort =n in oceanography the sections in this review are closely inter- related. Section II is mainly concerned with our report. Comments on the ICO program are contained in Section V. In cases where comments apply almost equally to both sections appropriate cross references are made. We have enjoyed a most cordial relationship with the members of the ICO, the staff of the Federal agencies, members of the Congress and the scientific community. We hope that this report will be useful as a gauge of the progress achieved thus far toward the development of a "llational Oceanographic Program" and of the critical problems that lie ahead. TAS = 3a REVIEW ALND ANALYSIS OF "OCEAIIOGRAPHY 1960 TO 1970" AILID SOME COMMENTS Ol] THE ICO PROGRAM A. Education and Manpower* We agree with and reemphasize the statement in the ICO Report, that the education of young scientists is the most important part of our long-range national program. The situation is improving. Oceanography departments in universities report a distinct increase in student interest in the last two years, amounting in some cases to a flood of applicants. This is almost certainly due to the increased public interest in oceanography and to better financial support for the field. It has been possible to inczease the enrollment of well-cualtified candidates some 50-100% in those institutions having the necessary space and funds. Other institutions have been unabie to in- crease their graduate student bodies in spite of increases in the number of applicants because of lack of space or funds for support. Those institutions which have increased their student hodies can go no further because of lack of space. There has been a tendency in the last two yeaxs to liberalize policies for granting federal aid to oceano- graphic education. Some agencies now make grants providing direct support for thesis research. To a limited degree, ‘training grants have been made available through the ilat*tonal Science Foundation and the Department of Health, Edusaticn and Welfare. The Office of Ilaval Research con- tract research program continues to provide a most valuable source of support for graduate research assistantships. By general support of basic research institutions, OIR has developed a stable and beneficial atmosphere for long range research programs in which graduate students can be supported. Ford Foundation fellowships totalling about one million dollars also have become available to some oceanographic institutions. *Comments in this Section apply to our Chapters 1 and 8 and to WSF, HEW and ONR programs. ae In short, there has been an improvement in the number of qualified candidates for graduate training, in the amount of money available for their support, and in the development of administrative policies which make it pos-= sible to utilize federal funds more effectively. However, this growth is less than: optimal, and most of the problems that faced the Committee two years ago are still with us. The shortage of trained personnel, particularly in physical -and chemical oceanography, is still acute. Expansion of training programs in most of the laboratories is’ now in- hibited by one or more of the following major limiting factors: é (1) Lack of physical facilities. An adequate teaching program requires both ships and shore-based facilities, and both are in short supply. Few institutions can materially increase their present number of students with- out obtaining more laboratory space. (2) Inadequate number of teachers. Oceanographic faculties are gradually increasing, but most of them still need diversification and strengthening, (particularly in physical oceanography) in order to develop a well rounded curriculum. Thus far there has been no federal support for teaching as recommended in our report. We still look for expenditures by the Office of Education, USF and the Public Health Service to develop and strengthen those oceanography departments currently trying to expand their teaching efforts. (3) Lack of financial support for graduate students. The support of graduate students in oceanography poses special problems to universities. Graduate students in the basic sciences, such as biology and physics, obtain a substantial proportion of their support through teaching assistantships and help in the instruction of the under- graduate body. Oceanographic teaching, on the other hand, is almost exclusively at the graduate level. With no undergraduates in their departments graduate students are cut off from this source of support. The critical period is normally the first two years, when graduate students are occupied with course work. This is the time when =-5- training grants or fellowships would be particularly useful. Once thesis research has been started, the student can be supported through the remainder of his student career by a research grant or contract. LISF support of research programs has increased and part of this support can be used for graduate students working on research programs. We continue to believe that direct IISF support of graduate students, either through training grants or through cooperative fellowship programs with oceanographic departments would be most valuable. The value of this type of support has been demonstrated by the Public Health Service and the Office of Education. In summary, the stage is set: for expansion of educa- tion and teaching in oceanography. There is increased student interest and the beginning of the developnent of effective mechanisms of financial aid for them. We r2commend thet the annual level of support for education and training originally suggested in Chapter I of our report be doubled. In-service training for technicians and scientific staff of Government agencies also should be increased. Actual accomplishments remain relatively slight. A broadly-based program of support is required including ships, laboratories and classrooms, teaching positions, and student stipends. The [Jational Science Foundation should play a more vigorous and direct role in supporting graduate students. B. lew Ships for Research, Development and Surveying* During the last two years a promising beginning has been made in the design and construction of new ships. In the Department of the avy a continuing program for construction has been formulated and set in motion (one small ship has been built and construction contracts for three large ships - one for basic research and two for applied work - have been let to date). The Jational *Comments in this Section apply to our Chapter 1 and 6 and to Navy, C&GS, lISF, BCF, Maritime Administration and U.S. Coast Guard. programs. Ge Science Foundation has provided funds for the design and construction of a research ship. ‘the Bureau of Commercial Fisheries is building three ships to ‘replace existing hulls. By far the largest part of the budget for new. construction is for ships for applied research and develop- ment and for surveying. - The Coast & Gecdetic Survey, the Bureau of Commercial Fisheries, and the ilavy all have bucset items for such ships, These ships can be put to work on important development work and on the ocean-wide survey as soon as they become available. Iilew ways of world-wide precise navigation will soon be available. his will be of great importance to the ocean-wide survey program. In terms of total tonnage new ships are coming into being almos: as rapidly as the Committee had hoped. They will be excellent ships and if present plans are followed, we will soon have more adequate ships at sea. The design studies carried out to date strongly support: our original recommendation that ships especially designed for narine science can be much more efficient then existing ships, which for the most part are conversions. To date, however, no newly designed ships have been de- livered and subjected to the test of actual operations. We continue to emphasize the need for adequate advance design work oi: each of the new ships. Each must be G2signed for, and in close coordination with, the future operator. Each, in a particular class, should be a step forward in the evolution of research ships and not a carbon copy of an existing "adequate" design. The "savings" Wiich might be achieved by constructing a fleet of one=-daesign hulls will be lost by the earlier obsolescence of these new ships. Operating Costs of Research Ships At present, two ships in the 1400 ton class are assured for basic research. Budgeting for operation of aie the 1400 ton lISF ship has not received much attention. The operating costs of this and other IISF ships should be part of the long range programs of the LSF and the llavye As the Committee originally recommended, at least part of the operating costs of the larger ships should be provided by facilities contracts and insti- tutional grants or they will tend to be diverted for use on applied problems. Ship Sizes The size ranges outlined in our original report should not be interpreted too literally. In all cases we were referring to approximate displacement loaded tonnages. There is little enthusiasm within either the Hydro- graphic Office or the Coast & Geodetic Survey for ships of the 500 ton class for ocean-wide surveys. Preliminary d2sign studies for survey ships by these two organizations have been directed mainly.toward larger and more expensive ships. During the past two years both the Navy and the IIational Science Foundation have supported the design and construction of ships in the 1200-1500 ton class. One 600 ton 140 foot catamaran is being designed for the University of Miami Marine Laboratory under lISF sponsorship, end another catamaran design is well along at Johns Hockins, Recently FY 1962 support for a 3000 ton C&GS survey ship was included in the President's message on oceanography to the Congress. The Committee is on record as strongly endorsing the design and construction of this ‘ship. We also recommended in our letter of endorsement thats: "Concurrently with the design of a 3000 ton open ocean survey ship, a systems study of the entire ocean survey problem should be carried out by contract with a competent industrial group. Survey ships of this size must utilize the best of modern instrumenation and technology to assure their favorable com- petition both operationally and economically with smaller ships." ‘ lo study of this sort is underway (or as far as we know, even planned). We must reemphasize the need for this study. The best available design and opera- tional evaluation talent should be called upon to assure the development and construction of the best possible ships in each of the recommended classes. We need not hold back in the commitment of funds for construction while awaiting the results of these studies. Clearly large and small ships are needed both by government agencies and the private laboratories and they are needed soon. Operational experience with each class can guide the future emphasis as to numbers of ships in each size class. Legal Requirements Research ships need to carry about twice as many people as conmercial ships of comparable size and at the same time require ample space for laboratories and sicrage. Even so, existing legal requirements for living accommodations, safety and licensing of crews in research ships operated by non-government agencies have not become a limiting factor in the design of ships in the 1400 ton Class. This may not be the case when the design of a ship in the 500 ton class is attempted. One problem centers on the present requirement for the use of life- boats rather than rafts. It is perhaps significant that the smaller ships now being designed or constructed for the private laboratories are all less than 300 tons and trerefcxre avoid most of the existing regulations. Continuity of Design Development On the whole, the design of new ships for marine science has proceeded smoothly, if somewhat slowly. Since a number of agencies are involved and since the economics of the operations of these new ships have not yet been squarely faced, leadership is needed within the government to assure that we end up with a fleet that is efficient for the many different kinds of work to be done. It was originally recommended by the Committee that the Maritime Administration should be asked to give advice in these problems and this still seems a good recommenca- tion. Muclear—- Powered Ships Two years ago it seemed to the Committee that the use of nuclear power in the larger research ships was beyond the technological possibilities of the next ten years. This matter is at present being seriously ex- piored in llorway. it should receive some attention in this ccuntry because the realization of relatively small and quiet nuclear power plants now seems less remote. C. Shore Facilities for Basic Research* In Novemher of 1960 the Committee sent a letter to the directors of twelve oceanogiachic laboratories asking for specific informaticn concerning their immediate (1 to 5 year). and long term (6 to 10 year) needs for shore facilities. The replies indicated that our original review grossly underestimated the need for such facilities, Most of the oceanocxaphic laboratories are now seriousiyv overcrowded and require much more space for machine shops, libraries, classrooms, laboratories, offices and special facilities simply to meet current requirements. Their shore facilities have not kept pace with their growing activity and increased demand for research in the marine sciences. The original report in Chapter I, "Introduction and Summary of Recommendations," recommended only $16.5 million over a ten-ycar period for basic research shore facilities. Our more recent review now shows that more than this total is actually needed to meet the immediate needs of the laboratories included in the survey. We must revise our original estimate for the 10 year period and emphasize the urgency of taking immediate action to provide adequate shore facilities. “Comments in this Section apply to our Chapter 1 and to programs of IISF and the avy. =¥O« Summary of Immediate ileeds In the tables that follow, the responses from 12 oceanographic institutions and laboratories are summarized, We have identified immediate (1-5 year) needs as compared with requirements for a second 5-year interval. Only two laboratories (Texas A & M and Oregon State College) have comparatively modest require- ments for the first 5-year interval as compared with the second 5-year interval. However, in both cases their short term requirements are critical. Only one laboratory (the Bingham Oceanographic Laboratory) did not make a specific, urgent appeal for funds for new construction or renovation and remodeling of existing buildings. Only one laboratory (The University of Miami Marine Laboratory) felt that with the additional facilities requested during the first 5-year interval, they would be able to develop to a size and capability commensurate with their future interest and necds. Within the next five years, approximately $13.8 million is necded for new laboratory space, $0.5 million to remojel and renovate existing buildings, $6 million for new port facilities, $1 million for special aquaria, radio- logical laboratories, seawater systems, etc. and $1.5 million for library facilities for the 12 institutions queried. ‘The survey did not include the shore facilities needs of the ilavy, the BCF, the C&GS, other Federal agencies, or state fishery laboratories. Less than half of the laboratories operated by universities and foundations are included. Although most of the non-Federal laboratories rot included in the ‘survey are small, some of them should expand several fold to meet national needs. Assuming an average of $300,000 needed for shore facilities by each of 20 laboratories adds $6 million to the amount needed for the next five years for a total of about $29 million. at Although the information received is not complete, a total of about $25 million is also needed for the second 5 year period. There are many probiems to be faced before adequate shore facilities can be provided. Although the [avy has a dominant role to play in the national program, this agency may not be able to foster the needed construction of shore facilities for non-Federal laboratories at a rate commensurate with existing and projected require- ments unless its policies are liberalized by Congress. We recommend that the [lational Science Foundation, the Mavy and private foundations play major roles in providing new shore facilities. The information contained in this section is based solely on our survey of November 1960 and mus not be interpreted as a commitment or a limitation of any of the laboratories. TABLE I SUMMARY OF COUSTRUCTIOU FUNDS LIEEDED FOR NEW SHORE FACILITIES (IN THOUSANDS OF DOLLARS) Thous. Lab Facility Sq.Ft. Sio lew Labs & Classrooms 30 Marine Bio. Lab a2 Expeximental Tanks, etc. - Docks & Marine Facilit. - liew Gahs, Shops, Office, 90 etc. WHOI Wew Labs 55 Piers & Marine Facilit. - Aquaria, Special " = Wew Labs 84 TEXAS Renovate Labs 13 A&M Wew Labs 60 Renovate Labs - LAMONT New Labs 13 Docking, Sr ops,e=c. ilew Dorms GCafeteria Renovate fox Library New iabs New Library Mew Dock Facilities BING=- Wew Labs HAM COLL. Renovate Library = Or THE Seawater System & - PACIFIC Spec. Dormitory &Cottages 5 U.S.C. Renovate Lab 75 HA- Aquaria, Special Equip 80 COCK lew Library 20 U of Renovate Lab 10 ALASKA eS es First Sy nae $ 1,600 700 250 600 2,900 3,000 150 165 800 742 500 150 20 16 Second 5. Visi $ 5,900 3,600 150 1,500 75 1,500 1, 000 no info no info no info $ Trot a Lis First 5 MES 3, 150 6,050 165 lone 126 155 200 Second 5 VEGe $ 5,690 5,000 3,075 1, 000 no info no info no info TABLE I (continued) Bore ayn is TAOS sus sbeL GS Second First Second Lab Facility Sie Fes 9 Yee. 5 Yrs. 5 Yrss 5 NES. $ $ $ JOHNS Wew Labs 18 1,080 HOPKINS Aquaria,Speciai Labs al 600 no info 1,680 no info MIAMI New Labs 27 1,400 none req. none req. Environmental Leb & 16 600 Soecial Facilities New Library 2 500 1,480 OREGON llew Lab & Shop 40 600 800 STATE Port Facilities &Shop 10 200 lew Lab & Classrooms 40 660 Coastal Lab & Skop 30 500 1,160 Equipment U Of NWew Labs & Classrooms 140 4,700 WASH Port Facilities & Land - 1,500 Renovate Library - 250 no info 6,450 no infc sal Qe TABLE IT "IMMEDIATE" AND "LONG RANGE" SUMMARY (Il) THOUSANDS OF DOLLARS) Total Total First 5 Years Second 5_ years BINGHAM none 1,000 Sio 3,150 5,690 WHOL 6,050 5,000 TEXAS A&M 165 S770 LAMONT 1, a2 Sy (0) 7/5; COLLEGE OF PACIFIC 126 no info WAS a(e- 155 no info U of ALASKA 200 no info JOHNS HOPKINS 1,680 no info MIAMI 2,500 none reg. OREGON 800 oO U of WASHINGTON 62450" * pape 3,618 $19,675 alae A. TABLE I1iI DETAIL CF FIRST S-YEAR REQUIREMEWTS (Ii] THOUSANDS OF DOLUARS) — Classrooms, Shops, .OfFfices liew Space Thous. Sg. Ft. SIo 42 WHOT .. : 55 TEXAS A&M aS LAMONT - 13 COLLEGE. OF PAC. - HANCOCK = U of ALASKA - JOHIIS HOPKINS 18 MIAMI 27 OREGOII AO U of WASH _140 $335 Bo Port Facilities Cost OREGON 200 U of WASH 1,500 LAMOLIT 742 WHOL 3,000 Siro 600 _ $ 6,042 D. COLLEGE OF PAC. HAITICOCK JOHIIS HOPKINS MIAMI sto WHOT Summary 16 80 600 600 250 150 a (Oso Sees Renovate cost Space Cost $ 2,300 - - 2,900 - - owe eS 165 800 - - 5 90 = = 15 - 10 200 1,080 1,400 600 _4,700 $13,780 28 Ss) 530 C. Library iceds Cost U of WASH 250 COLLEGE OF PAC. 20 HANCOCK 600 MIAMI 500 LAMOLIT 150 $ 1, 420 Special Facilities - Aquaria, Seawater Systems, etc. ey Ne ages D. Ocean-Wide Surveys* The ocean-wide survey program has caught the interest of two agencies--the U. S. Hydrographic Office and the Coast and Geodetic Survey. The Coast & Geodetic Survey has initiated a special open ocean survey designed to test procedures for both the "continuous underway" and the "stop and go" type of survey. The Coast & Geodetic Survey ship, PIONEER, started this "pilot" study between the Aleutians and Hawaii this spring. Similar work with the Hydrographic Office ship, REHOBOTH, in the equatorial Pacific from 120° to 180° west and 10° south to 20° north was also started during the spring of 1961. Planning A JU.S. ocean-wide survey program is well along in the planning stage staffed and sparked by the Hydrographic Office. Although still under development, the program mainly reflects the operational requirements of the agencies. However, the U.S. program must recognize the need for close international cooperation and coordination. We must be able to justify priority assignments on scien- tific and international cooperative grounds when we go into the intefnational arena to negotiate the necessary coordination of planning and exchange of data. In planning the survey program the value of recon- naissance surveys should not be overlooked. The areas of high priority for reconnaissance surveys will be different than the priority areas for detailed surveys. Priorities for the latter may depend on navigational limitations and immediate military and fisheries requirements. But general knowledge of a relatively unknown area can become very important almost overnight and time and inaccessibility may not allow proper investigations after the information is needed. Although the lIlavy, the Coast & Geodetic Survey, the Atomic Energy Commission, the Weather Bureau, the Coast Guard, the Bureau of Commercial Fisheries, and the scien- tific community are cooperating in planning this program, only the first two have any new money in their budgets for surveys. “Comments in this section apply to our Chapters 1 and 9 and mainly to programs of the lavy and the C&GS. =i 7s Survey Instrunentation During the past year the Office of llaval Research and the Hydrographic Office have taken steps to bring into being new, more and better instruments for survey data collection. Funds (totaling abovt 2% million) are budgeted for survey instrrements, instrument research and development, ocean buoys, Gzc. Among the factors to Le considered in the development of survey instruments is adaptability to automatic data processing, for example by digital recording. Complete systems studies of survey instrumentation and data ccllection should be carried out by a competent group. We place such a study as a high priority item. We must be able to bring the best of modern technology and systems analysis to hear on this problem. The instruments, the telemetering;, the data processing systems aud the ships we build over the next few years can be much more efficient than those we now use. If they are not they will be ob- solete when the siitrvey is well under way. We urge the ICO to take steps to see that such studies be carried out under the guidance of a special subcommittee, Operations The Coast & Geodetic Survey, the Hydrographic Cffice, and the Bureau of Commercial Fisheries should play a major role in the ccean-wide survey program. Other agencies such as the Coast Cuard, the Weather Bureau, the Atomic Energy Commission, and the Geological Survey, should also cooperate actively in pianning, funding, and participvation by personne] and ships where feasible. At the same time, the agencies should turn vartly to oceanographic institutions and engin- eering exploration groups for cooperation and special as- sistance. Survey Ship Construction The llavy has funded or is building several survey and military R&D ships. The first avy survey ship (a 1309 ton AGS) is .funded in FY 1962 and will go to the Hydrographic Office for special military surveys. A 2500 ton “world ccean survey" ship and a 4100 ton coastal surveyor are ~18=- scheduled for FY 1963. ‘Thanks to the President's message (and hara@ work by ICC staff) a 3,000 ton ocean survey ship is in the FY 1962 budget for the Coast & Geodetic Survey as well as a 1,200 ton and a 750 ton ship. It is illuwni- nating to compare the recommended and planned new con- struction in terms of survey ships to be in operation by 1964. Reconmeaded anc Planned lew Survey Ship Construction (in operation by 1964) Agency Recommended Planned avy 2 D000, Gon* 5. 4 2000 ton 3 1200 ton C&GS 2 500 ton 2 500 ton 4 1200 ton 2 1200 ton ain a2 G00. cton 2. ony 2000t0n 2 7 Tonnages Recommended Lanned 500 4 ships 2 ships 1200 7 2 2000 is Bue 12 7 *Ppozroximate tonnages. Tre question of ship sizes will. remain, but differing opinions imust not be allowed to cloud the need for a few new ships in each size class soon. (See Section II-B on Ships) Getting Started Above all these considerations we should keep in mind that a deep sea survey program can be and should be started now with existing methods. The cevelopment of instrumen- tation and speed up of obtaining data can be carried out simultaneously. Improved techniques could then be intro- duced in the survey program as scon as they are ready. ae A modest beginning has already been made. The U. S. Coast & Geodetic Survey ship PIONEER, and the Hydrographic Office ship REHOBOTH are already at work. The Ilavy is planning significant support for survey instrument develop- ment but nothing has yet been done. International Cooperation In order to reduce costs to the United States and to speed up the progran international coordination is essential to the ocean-wide surveys. The new International Oceanographic Commission of ULIESCO should be encouraged and used asa means of developing this coordination. Bilateral agree- ments should also be used. The establishment of regional comaissions or councils should ke seriously considered by the State Department. Shore Facilities Except for modest funding of the liational Oceanographic Data Center, there is no evidence that steps are being taken (oc considered) to budget for the increased shore facilities needed to back up the increased ocean-wide survey program. Funding About 1% million dollars new money will be available for the Coast & Geodetic Survey in FY 1962 for ocean survey orerationus. This start has not been matched (to date) by tl.e ilavy. Money should be budgeted soon for shore facilities. Money should be available in Fy 1962 for a systems study. It is becoming more and more difficult to deterinine how much new money is availiable for oceanography as this already generalized term becomes more general and more respectable. This is particularly true for the ocean-wide survey program. ‘ill the 3,000 ton ships assigned to the Hydrographic Office be used for ocean-wide surveys or applied R&D? Should new instrumentation be charged off to the survey program or to classified projects? We know that the ICO is trying to keep these and other questions in mind as reviews and evaluations, plans and budgets for the national oceanographic program develop. This is not easy. =20= E. Engineering Weeds for Ocean Exploration* During the past two years inany iore people in govern- ment, industry, and oceanographic laboratories have become aware of the need for, and the feasibility of better oceano- graphic instruments. Some new instrument programs have been initiated, and better instruments are in the discussion stage. In some small areas progress is as good as recommended but on. the whole, progress has been only about half of our @arlier recommendations. ‘There has been a serious lack of funding for feasibility studies of advanced design instru- ments and vehicles and for building prototypes of production instruments. The fact remains that it is generally harder to obtain a small amount of money for preliminary design studies for new devices and ships than it is to find large sums for construction based on existing types or hurry-up designs with only marginal improvements. Funding procedures must include more money earmarked specifically for studies of advanced devices which snow promise of greatly improving our ability to do research or conduct surveys. Suivey instruments During the past year it has become apparent that survey instruments can be built which will permit much better surveys to be made than were practical even to con- sider a year ago. One example is that through the TRAIISIT navigation satellite of the U. S. space program, accurate nevigasion over all oceans and in all weather may be avail- aple much sooner than we had dared hope. A second example is that it now appears feasible to build echo sounders that provide a three-dimensional picture of the bottom over a wide path on each side of the ship instead of producing only a single line of soundings underneath. Such an echo sounder should revolutionize the ability of a ship to ex- plore, survey and chart bottom features. Standardization and prompt production are required of many of the instruments commonly used for basic research and survey. Examples of such instruments are: winches *Comments in this Section apply to our Chapters 1 and 7 and to. the programs of the Ilavy, iSF,AEC and the BCF. =e with electric cables, ‘towed temperature recorders, magne- tometers, recording buo.s, echo sounders, special naviga- tion aids, etc. Having 4 small stockpile of such instru- ments that could be loancd during international cooperative programs would pay rewarding dividends. Recent meetings sponsored by OR and the Hydrographic Office have empha- sized such instruments and have tried to define acceptable specifications for many of them. However, funding for any reasonable number of prototypes or for production has not yet begun. llew Research Instruments ONR, lISF and AEC have increased their support to individuals and groups, building new instruments for indi- vidual research problems. This trend is to be commended as is their general policy of keeping instrument development closely tied to active research programs. Deen Manned Vehicles During the past two years the bathyscaph TRIESTE has made a record:dive to the deepest part of the oceans, but it has not had mother ship support for oceanographic re- sexrch. Similarly on the East Coast the deep submersible program involving ALUMINAUT is nearly underway, but the problems of an appropriate mother ship have yet to be solved. Specific design studies on smaller submersibles that can be carried easily on the deck of a medium or large research ship have not been adequately carried out nor is such a craft budgeted. '- Unmanned Buoys and Radio Frequency Requirements Although several unmanned buoy programs have been funded, and progress in this program is better than in any of the other recommended areas for devices, it is only half the recommended rate. This seems particularly unfortunate in view of the needs for better synoptic ocean studies and global weather predictions. Radio frequency channels for such buoys must be identified and reserved soon. ~22- Other Specialized Research Vehicles The submarines IJAUTILUS, SKATE, and SEADRAGOI] have shown that even a minor "protective ice suit" permits a nuclear submarine to have great mobility and usefulness in the arctic. A nuclear submarine appropriately designed or adequately modified could roam the arctic almost at wili for oceanographic research, logistic support, or rescue work. Preliminary design studies on such a craft are lagging. The preliminary catamaran research ship study sponsored through the lational Science Foundation is another small but bold attempt to improve our seagoing capabilities in research. Design work on a large mid-ocean anchored buoy is proceeding and it is hoped that construction will soon be funded along with an appropriate research program. Even with major help from industry on production and design research, oceanographic laboratories need much more space and equipment for instrument design, construction, and modification. Summary Although a good start has been made, action of the scope and magnitude recommended has not yet been taken. To pave the way for such action in Fiscal Year 1963 (none too soon) about $500,000 FY 1962 funds should be made available by the ilavy for a group of advance design and systems studies by competent groups in industry. Such studies are particularly needed in the area of survey in- strumentation, where reasonable objectives can be determined. F. Radioactivity in the Oceans* Our report on Artificial Radioactivity in the Marine Environment was concerned both with problems of regulation and monitoring of the introduction of radioactive materials in the sea and the research needed to understand the re- sults of this introduction so that regulations might be meaningful and effective and scientists and laymen be informed of the expected effects. A research effort at an annual level of $6 million was proposed. We proposed that the monitoring of radioactivity should be carried out by agencies other than the Atomic Energy Commission. During the last year, the Department of Health, Education and Welfare and the Fish & Wildlife Service have taken on increasing responsibilities for monitoring studies of the estuarine environment. Much more remains to be done. The International Atomic Energy Agency has taken into consideration the need for international standards, methods, background data, and regulations for the control and disposal of radioactive materials in the sea, and a handbook of methods, procedures, standards, and regulations is being compiled. The working group on radioactivity of the ocean of the Special Committee on Oceanic Research is working together with the International Atomic Energy Agency in establishing an international laboratory at Monaco for the study of radioactivity in the oceans. Some Euratom nations have active programs for studies of the effects of the release of radionuclides into the ocean. Research and surveys for these purposes should also be considered by the Intergovernmental Oceanographic Commission of ULIESCO. . The AEC research support of oceanography has increased by a factor of five over the last three years. Plans are under consideration to reach the proposed level of $6 million in Fiscal Year 1963. The following table reviews growth in support of the various objectives outlined in our report. *Comments in this Section apply to our Chapters 1 and 5 and to the programs of the AEC, BCF and HEi. =~2i— Recommended AEC Support Activities and Research Tasks Annual Cost 1960307 1962 1962 (Thousands) Control. and: Monitoring Engineering studies........ $ 350 324 281 20 International coordination. 20 Estuarine and Coastal Studies Estuarine physical studies. 1,400 ALY iS: 165 180 Coastal physical studies... 1,400 99 189 440 Research in the Open Ocean.. 1, 400 309 997 1,380 Sedimentation .Processes. Residence time€Se..cceccccccece 134 81 98 187 Inorganic transf6rss .esecses 350(1) 107 85 126 Effects of the Biosphere General problemS..cccccccccne 600 313 378 644. Elemental analyseS......ceec- 100 14 32 145 Ecological studies of Gisposal? arGaS. cic oicisiss elsisie 0 238 128 133 199 Effects of Radiation. eeeeneese 100 48 30 95 Biological Field Experiments. 100. Large Open-Sea Tests.......-.400 - 2,000(2) TOTAL ~~ “S” 6, 192(3) 1,598 2,388 3,630 (1) $165,000 for succeeding years. (2) This item excluded from total because estimates are considered too uncertain. (3) $6,007,000 for succeeding years excluding Open-Sea Tests. It is evident that the AEC through its Division of Biology and Medicine is seriously attacking all aspects of the research needed to understand the effects of introduction of radioactive elements into the ocean. Research carried out with their sup- port should ultimately give the necessary background for suc- cessful prediction of these effects. The support given to re- search institutions will also create a body of scientists able to guide the national and international efforts to eliminate hazards connected with introduction of radioactivity into the =95e ocean. Actval expenditures by the AEC for parts of our recommended research program differ somewhat from our recommendations. This is to be expected. In new research programs rates of development should depend upon the avail- ability and interests of competent scientists. G. Ocean Resources* There appears to be increasing awareness among agencies concerned with marine resources, of the need for long-terin basic research to enlarge knowledge of the existing and potential resources of the sea. However, an inordinately large share of funds has been devoted to short-term studies for immeciate application, to the neg- lect of longer-term, more fundamental studies upon which future applications must be based. Such studies, designed to give en adequate understanding cf the occurrence, behavior and potential harvest of fish and other marine organisms are essential to extensive economic development and utilization o£ marine biological resources. In reviewing and assessing recent progress toward greater understanding of the resomrces in the sea, we find thats: be In a number of government laboratories there are programs of study on particular fish and shellfish species of commercial importance. These laboratories shovld give more attention to broadly-barsed. compre- hensive studies of marine communities and their inter=- reletioushins if the goal of enlarging ovr knowledge of potential resources is to be achieved. Although some government laboratories are now ocienting some of their research in this direction, the effort should be expanded and correlated with investigations under- way at university marine stations. ———— “Comments in this section apply to our Chapters 1 and 3 and mainly to the programs of the BCF. =I6= 2. The very small number of small-scale laboratory studies of the survival of young of commercially in- portant marine pelagic species has not significantly increased in the past two years. . However, there is Provision for a modest start on this important problem at several BCF laboratories in the 1962 budget. In- formation to be gained from such investigations is crucial to understanding fluctuations in populations and hence to intelligent management and use of fishery resources. 3. Interest in fish behavior studies has increased and some projects are underway. Lack of both adequate ayguarium facilities and sufficient trained personnel impede development in this field. 4. Some progress has been made on the development and use of anchored unmanned recording buoys.* Two or three prototype instruments are currently in operation off California, and Baja California, financed, in part, by the Bureau of Commercial Fisheries. They are still far from the stage of development where they can be reliably employed in a wide-spread network. This stage could be reached soon if additional vigorous effort were devoted to their development. Equipment costs appear to have been correctly estimated, It is still too early to verify estimates for servicing and data reduction. Another buoy, financed by a lIJational Science Foundation grant to the University of Washing- ton is being developed for use on Cobb Seamount. The Woods Hole Oceanographic Institution is developing buoys. 5. Only very preliminary consideration has been given to the development and employment of mesoscaphes.* Design and planning of such. devices. should be accelerated. Although the ilavy should have a major interest in such devices, their uses for research on the living resources of the sea are also important. Mesoscaphes should be designed, built and operated by both the ilavy and BCF. *See also Section E. a 6. A few studies on the genetics of marine organisms are being carzied out in university and private research laboraticries end some progress has been made in serological research in government labs; however, these areas still remain largely negiected. 7. Although many investigations of the effect of added nutrients have been carried out in lakes, the results re uncleac and no large scale experiments have yet been undertaken in the sea. 8. Some marine species have been transplanted with varying degrees of success. A recent exanple is that of the sardine transplanted by the Hawaii laboratory o£ the BCF. lIlowever, no carefully planned studies have been undertaizen, and none appear to be developing. 9. The natvre of aggrecations of organisms in the sea is still mostly unexpiored. 10. Plarning for biological surveys has begun both in goverment agencies and in university marine labora- tceries. The mapping of parameters important to fisheries development should be made an integral part of all survey operations when the taking of these observations is compatible with other objectives. It is also important, of course, that biological mapping be adeyuately considered in its own Bight in che @evelopment of naticnal plans for ocean surveys. As noted in Section v-C, the item for "surveys" in the BCF 1962 budget is not, in fact, for the sort of survey recommended by this Committee. ll. We note with satisfaction that a iJational Oceanographic Data Center has been established with joint support of liavy, Interior, Commerce, Mational Science Faundation and AEC and that it gives promise of serving effect- ively both governmental and non-governmental needs. Adeguate funding for the IODC is contained in the 1962 budgets of the sponsoring agencies. 12. a LA 15. 16. das 79> Scientific, sociological and engineering studies of utilization of marine products in protein-deficient areas of the world are beginning to receive more attention. Perhaps the International Indian Ocean Expedition, now getting underway, the forthcoming International Conference on Fish in Human iJutrition, and new proposed programs for Central and South American development will provide the needed stimulus for further attention to these studies. Economic and legal aspects of commercial fisheries, except for market statistics, continue to be ignored. This subject (like that cited in item 12), though apparently outside the usual type of study sponsored by the Bureau of Commercial Fisheries, is necessary to the effective development, support and planning of fisheries research. No fundamental scientific studies of salt water fish pond culture have been started and apparently none are contemplated. Manganese nodules continue to be reported by various exploration and research vessels but no consistent surveys have been undertaken. The Bureau of Mines is currently undertaking some analytical and sampling studies, and this work is being increased somewhat in 1962, but the funds for such studies are inadequate. Estuarine areas continue to be lost to fisheries as industrial and domestic pollution of shallow waters continues. These important areas often serve as breeding or nursery grounds for commercial fish and shellfish species. Research directed to their preser- vation and development should be given high priority. Interest in taxonomic and related studies has without question increased over the past two years. In university classrooms and laboratories, young scien- tists are turning more and more to this branch of biology. There is heartening indication of increased support from basic research funds, but it must be recognized that many years are required to overcome the neglect of the past. Support for the rehabili- tation and expansion of museums has been forthcoming from the lIlational Science Foundation. =99= 18. Studies of the diseases and toxic effects of fishes and other commercially utilized marine species, de- spite the importance of this topic, are still largely negiected by government research agencies. Ships fcr Resources Studies The Committee in 1959 recommended the construction of fourteen new ships over a ten-year period, seven to re- place existing ships to conduct needed research on marine resources, two of the new ships to be put into service in each year 1961 through 1966, and, in addition, one each in 1962 anda tIosr Tae BCF received in July 19€95 appropriations for one new ship to replace the Albatross III which had earlier that year been retired from service because of extreme obsolescence. This Bureau has also removed from its ser- vice, during the last five years, two other research ships, the Alaska, which is on loan to the State of California, and the H.M.Smith, which is on loan to the Scripps Insti- tution of Cceanography. The Blacx Douglas, BCF vessel based at San Diego, California, is being operated with a snort crew and with inadequate maintenance, due to lack of funds. Although the BCF will fund three new ships (2 as replacements, one as an additional ship) in fiscal 1962, and will probably be able to support the Black Douglas properly, it would appear that we are not gaining much ground with respect to fisheries research ships. Facilities It is encouraging to see that the shoreside facilities of the Bureau of Commercial Fisheries will be notably augmentec by the construction of a new laboratory building on the grounds of the Scripps Institution of Oceanography, and that this laboratory will provide space not only for Bureau scientists but also for scientific staffs of other, cooperating, fishery research agencies (governmental, university, and international). Important additions to the facilities of laboratories at Juneau, Alaska, Boothbay Harbor, Maine, and Oxford, Maryland are also being funded an LIG2i. =30= H. International Cooperation* During the past two years there has been an increase in international cooperation in oceanography. Two recent developments are noteworthy. An Intergovernmental Oceano- graphic Commission of member states of the UN family de- siring to cooperate in oceanic research and surveys is being organized under the umbrella of UNJESCO. This organ- ization should be useful in fostering cooperative oceano- ‘graphic programs between the member nations and we urge its wholehearted support by the United States Government. Secondly, the International Indian Ocean Expedition (sponsored by SCOR and UNESCO) is well under way in the planning and early reconnaissance stages. About a year ago, in response to a request from the Government, we proposed a plan for strengthening relation- ships between oceanographic centers in the United States and corresponding centers in Latin America. This was done at a time when tensions were particularly high between nutin America and the United States. We understand that this plan is now receiving renewed consideration by the Presicent's Science Advisory Committee and the ICA. We hope that new action can be taken to implement this plan. The Academy's Committees on.Oceanography and Inter- national Relations are currently sponsoring a study (being carried out by the Marine Laboratory of the University of Miami) of ways and means of developing stronger relation- srips between Latin American and United States marine scientists. Reactions from Latin American scientists are being sought concerning the best mechanisms for such cooperation. One plan frequently referred to in the responses to this inquiry proposes a non-governmental Inter- American Council (or' councils) for the exploration of the seae Such a council (patterned after the famous Inter- national Council for the Exploration of the Sea) could help develop strong and warm ties between the marine scientists of our country and our Latin colleagues. Specifically on the recommendations contained in Chapter I: *Comments in this Section apply to our Chapters 1 and 10 and to the programs of the ILISF, State Department and ICA. =a 1. The WUational Science Foundation has contributed to the support of SCOR. Svch support has been most useful and should continue. 2. Funds have been budgeted in iJSF FY 1962 to support the International Indian Ocean Expedition. Con- tinuing and close liaison is necessary between the Government agencies and the Committee on Oceanography to adequately plan and budget the remainder of the costs of this Expedition during FYs 1963 and 19354. 3. The Intergovernmental Conference recommended by the Committee was called by UIIESCO and resulted in the establishment of the ULJIESCO Intergovernmental Oceanographic Commission. 4. Regional international organizations should con- tinue to be supported. Other such regional organizations may emerge as the scientific capabilities of the develop- ing countries and their needs for cooperation increase. Tnaese should be encouraged and supported. 5. The State Department is bacoming more aware of the needs of marine scientists and more responsive to heiping facilitate their research ship operations. in foreign areas. 6. Except for one small expedition in the Gulf of “Thailand and the South China Sea, the ICA has not supported cooperative cceanographic programs with other countries. Fyen this small project seems to have ended without gen- exating much interest or understanding. I. Evaluation of Progress in Basic Research* In Chapter I, "Oceanography 1960 to 1970" the IAS-IIRC Committee wrote, ". . . The cornerstone of our oceanographic endeavors is basic research." and, ". .. The key to the growth of oceanography in the United States lies in basic research." The enduring truth of these statements needs to be constantly reemphasized. *Comments in this Section apply to our Chapters 1 and 2 and to the programs of the IJSF, llavy, AEC, BCF, PHS. =379= In oceanography, as in other branches of science , the incessant demands of important, practical problems often overwhelm the quiet voice of basic research. This is most likely to happen in the mission-oriented federal agencies. The importance of fostering, supporting, and encouraging basic research, and of providing the intellec- tual atmosphere where enterprises in basic research may Flourish, needs to be restated again and again. We recognize that there is a continuous feedback between discovery and application, that reciprocal fertil- ization of ideas is important and does occur between basic and applied scientists. But the mutualism that should exist in funding these activities is all too often so heavily skewed in favor of applied science that little is left for support of basic studies. The Committee therefore expresses some concern that the Navy, for example, in enthusiastically embracing: our recommendations for greater efforts in the applied marine sciences, and in moving vigorously to expand programs that are important to mili- tary defense, might inadvertently smother the Office of iJaval Research. This Office has been the most important source of federal funds for studies in basic oceanography in the lation's universities and cesearch institutions. The Ccmmittee commends its enlightened research support policy, and urges that OR support of the marine sciences be strengthened and continued. Cther federal agencies with directed missions support basic research in oceanography only to a limited degree despite challenging opportunities. The Atomic Energy Commission through its Branch of Environmental Sciences is an enccuraging exception. Though its funds-have been limited, this agency is mina | an increasing amount of basic research. Participation in marine studies by the Public Health Service remains minor in spite of the potential importance that biological studies of marine organisms may have to medical and health-related problems. In the Bureau of Commercial Fisheries, there is considerable evidence of interest and desire to undertake the basic research nec- essary to provide information essential to informed =33= management of fishery resources. To date little progress appears to have been made toward translating plans into action. Strengthening the quality and increasing the amount of basic research in government fishery labora- tories remains a high priority item. Although we have emphasized our concern with the plight of our country's museums and the small amount of support available for studies on the taxonomy of marine organisms (Committee resolution of February 27, 1960) there is little evidence of improvement in this situation. The federal agency most involved, the U. S. iUational museum of the Smithsonian Institution, is not represented on the ICO, yet the success of many government programs and surveys will depend upcn accurate and prompt identi- fication of the specimens collected. In this work, the U. S. LMatioral Museum must play a responsible role. At present, the ilational Science Foundation is fund- ing an increasing amount of basic oceanographic and marine biological research in the universities and research institutions. Considering that tnis is the federal agency charged with responsibility to entourage and support basic research in all branches of science, the increased interest in oceanogreohy during the past two years, and the consid- erable expansion of financial support to this field is most heartening. in this review of our report and the activities of encies we wish to emphasize that our estimates for shore cilities for basic research made in 1958, were unrealistically low. (See, Section TiI-c.) The same applies for our estimates of the funding needs for basic research programs apart from ships and facilities. While we are correcting the record we also wish to state that by listing the llavy and the ational Science Foundation as joint underwriters for the basic research program we were em phasizing the natural and Gominant role of these two organizations in basic research. Of course, all federal agencies with marine interests or missions need to support basic studies and maintain close and effective working relationships with the scientific community. Finally, we wish to reemphasize that our recommenda-~- tion for a "doubling of basic research activity during the next ten years" was (and is) a minimum recommendation and "that doubling the basic research activity will require more than doubling the total expenditures." =34= Ifi. LEGISLATIVE ACTIVITIES The past two years have witnessed an increasing Congres- sional interest in oceanographic matters. During the last session of Congress extensive hearings were held by the Senate Committee on Interstate and Foreign. Commerce, the Subcommittee on Oceanography of the House Comaittee on lierchant Marine and Fisheries, and the House Science and Astronautics Committee. However, the only bill to receive enactment during the 86th Congress was S. 2482 extending tne area of operation of the Coast and Geodetic Survey from the limits of the continental shelf to the deep and wide reaches of the oceans. A bill S. 2692 covering the general expansion of oceanography, sponsored by Senator Magnuson and several other Senators, passed the Senate unanimously but did not get to the House floor. Several bills introduced by Rep. Miller of California, and others, provided a base for hearings but likewise did not reach the floor. During the current session cf the 87th Congress, Senator Magnuson has introduced a bill, S.901, rcathexr similar to his previous bill. Hearings on this bill were held March 16-18, ‘1961.* Rep. Miller has introduced two bills, H.R. 4276 and H.R. 4340, covering more specific subjects. Hearings on H.R. 4276 were held June 19-22, 1961 and on H.R. 4340 April 27, 1961. The House Merchant Marine and Fisheries Committee has formally reported out H.R. 4340 and a revised version of H.R. 4276 will soon follow. Oceanography, being split as it is among several depart- ments and agencies of the government, each with its own legiti- mate and long standing interest in different phases of the subject, does not fit in with the pattern of Congressional Committees, especially on budgeting matters. As a result there is an apparent (and natural but regrettable) lack of coordina- tion between the two Houses of the Congress and their Committees. In the Executive Branch, the Interagency Committee on Oceanography of the Federal Council on Science and Technology is operating quite satisfactorily. H.R. 4276 would establish a Mational Oceanographic Council having similar coordinating responsibilities to the ICO but with broader authority. We have recommended that such a council be established with an Advisory Committee made up of leading non-governmental scientists selected from a slate of nominations prepared by the lational Academy of Sciences. *S.901 was passed by the Senate July 28, 1961. =35= IV. OTHER ITEMS A. Medical Aspects of Oceanography The medical implications of oceanography are revealed in studies of antibiotics, vitamins, toxins, and pharmaceutically important substances that are extract- able from sea water or from marine organisms; in investi- gations of parasitism and pollution, and in the physiolo- gical activities of diverse marine creatures. Unsolved problems far outnumber those that are being attacked. Medically-oriented work with marine forms is handicapped by the general unavailability to medical scientists of space in marine laboratories. Moreover, the equipment, research facilities, supplies ani financial support are generally mich less in marine lavoratories than in medical schools and research institutes, most of which are located far from the sea. B. The lMational Oceanographic Data Center The new Mational Oceanograph:.c Data Center, now being ozganized jointly by the avy, the iational Science Foundation, the Bureau of Commercial Fisheries, the Atomic Energy Commission and the Coast & Geodetic Survey, can become an important adjunct to the country's basic research effort. This will be possible only if the director is a scientist, capable of recognizing the un- paralleZed opportunity for utilizing the accumulated data in his own research. ‘The iJODC can then become a major center for basic research. Otherwise it will function merely as an archive. If it is guarded by a jealous custodian it will be virtually useless; if its records are available, it will have a value in direct proportion to the ease and speed with which the data are retrieved and disseminated to the scientific community. We suggest that the lNODC develop a "summer fellowship" program to encourage direct work with their data by marine scientists with specific problems. = 363 V. INTERAGENCY COMMITTEE ON OCEANOGRAPHY PROGRAM The report of the Interagency Committee on Oceanography of the Federal Council for Science and Technology "United States National Oceanographic Protram Fiscal Year 1962" marks a new and significant advance in the planning of the several Government agencies concerned with the oceans. The ICO has done an excellent job of coordinating and developing these prograins, It is clear that there is good cooperation, good direction and a sense of unified national purpose throughout the report, In the sections that follow We analyze the agency programs (as we under- stand them) in some detail. A. Department of Defense Nav The Navy reports a 310 million increase from Fiscal 1961 to FY 1962 (45%) totalling $32,270,000 for 1962. This increase is almost entirely accounted for by three ships (two for military research ard one for military survey activities), We are happy to see more ships being funded and realize that ships come in larger budgetary packages than research projects. However, the increase for Fiscal 1962 has been accomplished without any significant increase for research. Research -- Detailed examination of the research portion of the Navy program shows that the 8% increase reported is aimost entirely due to such budgetary items as oceanographic-hydrographic charting, instrumentation, geophysics-geographic prediction, oceanographic-hydrographic predictions, etc, All of these are more properly considered as applie. developmentalactivities rather than research. In spite of an impressive increase in the Navy budget there will actually be less money available tc ONR for research in FY 1962 than in FY 1961! In Fiscal 1963 there should be continucd total program increases and a baiance between increased funding for research and for development and facilities activities. We have examined the ONR research program in some detail and feel that it is well founded and without duplication or unnecessary overlapping. The Navy is to be congratulated that a considerable fraction of the funds being supplied to laboratories to carry out oceanographic research are "untagged" and the laboratory directors are remarkably free to use these funds in programs of their own choosing. Especially in ONR, "projectitis" has been held to a minimum , Ship Construction -- During the three years covered by the ICO report, only one of the six ships funded has been for research, In contrast three out of seven large ships built by the USSR since 1957 have been for basic research. In the U. S. Navy TENOC plan the majority of the ships scheduled to be used for * See also Sections II-B,C,D and E, a SF research are listed near the end of the ten year period. We recommend that scuedules should be reversed to achieve a better balance during the next tew years between ships for basic research and ships for applied research and surveys. Surveys -- We understand that the small surveys item which appears in the Navy budget in FY 1861 anc 1962 is in support of the Indian Ocean Expedition, Only a minor portion of this work can be considered as contributing to the o¢ean-wide survey program, ‘The studies being carried out dvring the Expedition by siins of the oceanographic laboratories are more properly identified as research. We are discouraged to note that even if this item could be regarded as surveys it is very small in amount and actually decreases from FY 1961 to 1962. Facilities - - Inadequate, overcrowded shore facilities are seriously hampering the effective development of the national oceanographic program. A fiscal program for the Navy's share of a laboratory buiiding program ‘s entirely absent in the three years under review in the ICO report, and throughout the entire ten year TENOC program! FY 1963 funding should include a substantiai Navy facilities contribution to help correct the critical shortage of space at most marine laboratories, Other Subjects -- In the aréa of basic research the Navy has primarily supported p):ysical oceanography as the subordinate discipline most pertinent.to Naval needs, One of the key problems in this field is tae study of the circulation of the oceans, yet only a handful of marine scientists are now engaged in this study, This number aceds to be increased. If the expected gains of the TENOC plan are to be really useful to the fleet, _more officers and Navy civilians will be needed with sound scientific backgrounds. The numbers of such individuals should be increased and the quality kept high. We Lave not yet had adequate time to study in detail the latest version of the Navy's Ten Year Oceanographic Pian (TENOC-i961), but we are impressed with the evident care and detail that has gone into its preparation. Summary -- Because the Navy is responsibie for the major share of the national effort in oceanography, we believe that it shovld maintain a balance between fundamental research and applied researchand surveys. This will require: a) increasing the proportion of new ships constructed for basic research b) providing shore facilities for basic researcen, and c) increasing funds for the support of basic research. More good research scientists are Constantly becoming available and operating costs are increasing. Air Force* and Army We will not undertake to comment here on the programs of the Departments of the Air Force or the Army. These are relatively small programs and have not changed significantly during the last three years. B. Department of Commerce Coast and Geodetic Survey* * The Coast and Geodetic Survey oc2zanography budget shows a marked increase from FY 1961 to FY 1962. This reflects the Survey's developing in house capability in oceanography. This capability should be supplemented by research contracts with institutions and industry inthe coming years. The level of research activity within the C&GS is well below that needed to meet the statutory responsibilities of the Survey. A few inore capable reseaxch oceanographers and nore well trained technicians are badly needed. By far the largest C&GS budget increase is for ship construction. As indicated ir. Section II-D, the Survey's ship building plans emphasize larger ships than recommended in our report, Realistic design and system studies should be made to compare the overall survey efficiencies of large with smaller ships. In fiscal 1963 C&GS plans call for one 3000 ton, one 1200 ton, and two 750 ton coastal charting ships in addition to one 3000 ton, one 1200 ton, and one 750 ton ocean survey ship. The 1200 ton and 3000 ton coastal ships should be designed with an adsquate capability for deep sea oceanography. Then, if priorities change, they can b3 used for open ocean survey and research work. This should be relatively easy for the large ships. The 750 tonners present more of a problem, but they too could be given considerable deep sea capability. In both C&GS and Navy survey ships the ratio of survey personnel (scientists and technicians) to ship operating personnel appears comparatively small. It may be possible to improve this ratio although we recognize that in the Coast Survey ships many personnel listed as operative are actually engaged in the technical details of survey work, C&GS is commended for adding programs of investigations of the overlying waters to the coastal survey missions of some of its major ships. However, * See Section V-B, Weather Bureau ** See Sections II-B and D. =49 = when reporting the invreased effort in oceanography, only the funds required for these additional investigations should be coasidered, The C&GS presently has the Pioneer on ocean-wide surveys in cooperation with the Weather Bureau, Bureau of Commercial Fisheries, Geological Survey, and University of Hawaii. This effort is commended as is their policy of authorizing changes in survey schedules to permit investigation of interesting features. As the occan-wide survey pregram takes shape, more attention needs to be given to automatic collection, processing, and utilization of data. The C&GS should study its instrumentation and data collection and processing methods and attempt to develop greater effectiveness in handiing large quantities of data, This holds for shipooard and laboratory processing of oceanographic data and also for the processing and analysis of tidal data and the prediction of tides. The proposed geodetic satellite has iraportant implications for oceanography. The C&GS should taken an active role in this program. Open ocean tides need to be studied to improve tidal predictions along coasts, Weather Bureau The Weather Bureau's contribution to the oceanographic program (though still small) shows a marked and encouraging increase in FY 1962, The Bureau needs to continue to increase its research efforts both within its own organization and by contract with meteorological and oceanographic institutions. Both Air Force and Weather Bureau involvement in oceanography has been marginal up till now. These egencies should greatly strengthen their support of the marine aspects of their research and development program. Gne of the most critical and important probiems is that of the exchange of energy and materials between the ocean and the atmosphere. The coming International Indian Ocean Expedition offers a splendid opportunity for the Weather Bureau and the Air Force to participate actively in a major meteorological research effort over an important but poorly understood area cf the earth. This undertaking will rely heavily on adequate study of the atmosphere-ocean interrelationships. Both agencies should furnish funds and assistance for instruments, ships and aircraft. Maritime Administration * While the Maritime Administration has been very helpful in assisting individual groups on research ship problems and design, they have not shown the * See Section II-B. interest and initiative required for leadership in studies on specialized craft for research, biological resource studies, deep sea dredging, offshore drilling, factory ships, and other new types of work craft which use the ocean for something more than a highway. Imaginative leadership in this area is needed but this does not imply control. Bureau of Standards The Bureau of Standards has done some excellent work ia oceanography but the Bureau should assume more responsibility in the quality control of oceanographic instruments and measurements. This might include monitoring any national calibration facilities for oceanographic instruments and serving as an advisory center for other such calibration facilities -- whether private, government or commercial. ~ 2] = C. Department of Interior Bureau of Commercial Fisheries* Although FY 1962 shows a substantial total increase, most of this is for facilities and replacement ships. The increase for research, while encouraging, is relatively modest. Research -- Although the more liberal Bureau policies regarding research are encouraging, nevertheless, only a little more than $600,000 of the funds budgeied in FY 1962 are for new programs in oceanography. This is considerably less than the amount recommenced by this Committee. We endorse stens being taken by the Bureau to develop a research grant and fellowship program. Alihough some of the FY i962 research oucaget is for basic marine and estuarine studies, there is still overemphasis on short term studies for immediate application. The Bureau is supporting some estuarine research but more needs to be done. This work should be correlated with other research and with surveys of industrial polution problems. wWe note with approval that at least $200,000 of the BCF research budget is to be devoted to basic estuarine research. The Stanford Laboratory is doing an excelleni job of relating meteor- ological events to oceanographic conditions. Here fundamental studies are being unaertaken which will benefit both fisheries research and other fields. Surveys--- The item shown under "Surveys" of $1,250,000 is not for survevs, in the sense of our recommendations, but for an emergency Alaska sa’'mon program to provide specific information required for certain internationsl salmon management problems. Facilities-- We are encouraged to see significant funds budgeted for new and improved shore facilities for Bureau activities. Ship Construction--- Funds for new fishery research ships are long overdue. While a start has been made in the FY 196i and 1962 pro- grams, the net gain in total fishery research ships will be only one small coastal vessel, since the other three new ships will be replacements. As noted in Section II-B, rate of funding for new construction is still considerably less than the minimum recommended by this Committee. * See also Section II-G, Iftem 15. = ps2 Bureau _ of Sport Fisheries and vJildliie while $158,000 is being budgeted by the Bureau of Sport Fisheries and Wildlife for research on life histories and ecology of sport fishes, both inshere and offshore environments, this amount is very small in re- lation to the importance of recreational marine fishing and the burgeoning problems of maintaining sport fish stocks in the face of increasing sport and commercial fishing pressure. we urge the Bureau to play a larger part in the national oceanographic program. The programs and objectives outlined in the ICO report are well founded and should make an important contribution. We are particularly interested in the Bureau's plan to sponsor and finance graduate fellowships in fields of taxonomic relationships, life histories, behavior, etc. Geological Survey The Geological Survey is carrying out a number of small high quality investigations on marine geology. This organization has a potential for making substantial contributions in the future. Funding to date has been disappointingly small in relation to this potential. Geographical limitations of the Survey's activities should be removed so that it cen carry out activities beyond the territorial limits of the United States under its own initiative supported by its own funds. Bureau of Mines* The Bureau of Mines support of research and development on marine mineral resources is still well below that recommended by the Committee. Although immedisxte economic pressures for exploitation and development of the mineral resources of the ocean are now slight, in the future nations may have to turn to the oceans as a source of mineral resources. We must establish a firm base for our own future use of these resources by exploration, research, and engineering studies of methods of their re- covery. *. See Section II-G, Item 15 D. Wational Science Foundation* Research=--The [ational Science Foundation has provided a steady and substantial increase in their total funds for basic research during FY 1960, 1961 and 1962. The FY 19€2 total is approximately double the FY 1961 figure. The Divisions of Biological and Medical Sciences and Mathematical, Physical and Engineering Sciences have shared about equally in this increase. With increased funds the Foundation has been able to support some large and comprehensive proposals as well as an increased number of smaller proposals. large proposals are particularly significant in the oceanographic field where ship opera- tions are a necessary and expensive part of research pro- grams. Even more institutional and general ship funding is desirable in the future. Antarctic Program--The NSF Antarctic Program is also expanding. Their ship, to be operated in Antarctic waters, serves an interdisciplinary program and will only be available part time for oceanogrepnic work. There is also a need for an ice-working floating laboratory for operation in Arctic waters. Indian Ocean Expedition--lISF funding for FY 1962 for the International Indian Ocean Expedition may not be adequate in view of the unexpected needs of the meteorol- ocy program; ari essential part of the Expedition. Sub- stantial increases will be requested for FY 1963 and a cimilar amount will be needed in FY 1964. Ship Construction--Funds available to IISF for grants for ship construction seem to have reached a plateau at about $3,500,000 per year. The NSF policy of turning design control and title to ships over to the grantee in- stitution accompanied by adequate safeguards for recovery of the ship should the grantee fail to use the ship for the purpose intended, is heartily endorsed. One of our original recommendations was that this should be done. We are confident that in this way better ships will be built and their operation will be more efficient. *See Sections II-A, B, C, E, and I. Adin Facilities--FY 1962 shows a large increase in the IISF budget for facilities. While we applaud this in- crease, the amount budgeted will be insufficient to meet even the pressing and immediate needs of the oceanographic institutions. This amount should be increased to $15,000,000 in FY 1963 and maintained near that level for several years to come. E. Atomic Energy Commission Our Giscussion in Section II-F of this report reviews the Atomic Energy Commission ICO program. We concur with the AEC research objectives outlined in the ICO report and with the research tasks which will be supported with this additional funding. We are pleased to see a signifi- cant increase in funding for FY 1962 in the AEC Biology and Medicine Division. Other AEC Divisions show negligible or no increase from FY 1961 to 1962. This is surprising in view of the continuing problems of these Divisions that require work in the marine sciences. As indicated in our other Section, we are particularly anxious to encourage additional attention to the complex and difficult problems of deep ocean circulation. In the past, AEC support has been rightly concentrated in estuarine and coastal areas. How-= ever, future activities and capabilities portend a shift in emphasis toward the deep sea. F. - Department of Health, Education and Welfare* U. S.~ Public Health Service The U.S. Public Health Service has substantially increased its support of inshore oceanography as related to problems of pollution. The FY 1962 program is approxi- mately double the FY 1961 effort. About half of their total program is conducted by grants with coastal labora- tories, and the remainder in their own laboratories. This is a good ratio and should be maintained. The increased PHS Division of Radiological Health participation in the oceanographic program is encouraging. We look forward to future extensions of this work. *See Sections II-A and FP -45- Wationai Institutes of Health The PHS Wational Institutes of Health have to date played no part in the national oceanographic program. We believe that the marine sciences are vital to much of the mission of the ITIH. We urge iIJIH participation and support. Education remains a major problem-in the development of a national oceanographic program. The Office of Educa- tion has interpreted its statutes to restrict the Office to a passive role in extending education grants. The Office acts only upon receipt of applications from insti- tutions. To date such applications remain at a low level. The budget of the Office for educational grants is very small and shows no sign of increase. Pure Food and Drug Act We view with concern the continuance of the Pure Food and Drug Act in its present form. In light of modern scientific knowledge, many of the provisions of this statute are superfluous. Worse, by adhering to out- moded beliefs we tend to ignore, and thus waste, much of the potential food value of our ocean's living resources. We recommend that the Department of HEW reexamine the Pure Food and Drug Act with a view to modification or removal of those portions that prevent efficient utiliza- tion of fisheries resources. G. Department of Treasury U. S. Coast Guard* The oceanographic work of the USCG International Ice Patrol is well established and extremely useful. The Coast Guard should extend its oceanographic work to other areas. There is some indication that this is be- ginning thrcugh cooperative work with other agencies. It seems unfortunate, however, in view of the present rapid growth of oceanography, that USCG facilities are not used in a more positive manner for scientific purposes. *See also Section II-B Specifically, the Committee offers the following comments and recommendations: International Ice Patrol--Waters highly sensitive to marine climatic change lie immediately to the west of the International Patrol area in Ungava Bay and Hudson Strait. We suggest that the Canadian authorities be in- vited to make routine sections in these regions at the same times of year as the IIP Surveys. Ocean Station Program--Vessels employed on the Ocean Station Program should do far more than just make bathy- thermograph observations. A great opportunity to develop time-series observations of hydrographic phenomena is being lost by not obtaining full oceanographic measure=- ments at regular and frequent intervals from these ships. Plankton Surveys--In view of the intrinsic interest in plankton distributions and the value of plankton as hydrographic indicators, we recommend that USCG vessels be equipped with high speed plankton collectors or re- corders to be used on’ cruise courses at regular intervals. This should be done in cooperation with other agencies equipped with the necessary laboratories and personnel, such as the Bureau of Commercial Fisheries. Educational Opportunities=-The operations of the USCG, present and planned, offer unparalleled opportuni- ties for the training of students in physical and bio- logical oceanography. We recommend that serious attention be given to this point. Legislation--Legislation to provide for an expansion of the functions of the Coast Guard currently in Congress should enable greatly increased U. S. Coast Guard partici- pation in the national oceanographic program. The poten- tial of this organization is great. We recommend passage of this legislation. Funding--In view of the USCG potential, the level. funding for FYs 1960, 1961 and 1962 is astonishing, even appalling. We would look for a substantial increase in subsequent years. a 1S ar er ae Heal Vere Pay noise i VRE ANU LE ALY 1 } i We i a A wasn Hil 4 ye ben ai - sc ‘ ' i i tvs yh a ’ ea ail ose tala mid h \ Ny Gay ary, Me a A , ie : fi anaes bea, oe Cr a a a yrs . Sa ani oi teers TO Mee j Th, a } ' ; ~ We) Coco Te era ene vaio) ree ARTS ih Ce we ee