348 NATIONAL OCEANOGRAPHIC PROGRAM LEGISLATION 



We also find, that despite the increased attention to oceanography, there 

 continue to be various handicaps to greater exploitation and development. There 

 is insuflBcient exploration and mapping data, even vrith respect to the Continental 

 Shelf. There is a lack of detailed engineering information with regard to par- 

 ticular areas. As a nation, we have not developed the technical knowledge for 

 site occupation, improvement, or development, nor the skills for the manual 

 operations that will be required. There is inadequate dissemination of the vast 

 amounts of basic oceanographic scientific information which have been collected 

 and developed over the years. Ocean-tested equipment and instrumentation is 

 still largely in the developmental stage and underwater transportation and 

 communication leave much to be desired. 



The above-mentioned technical obstacles will be solved, in large measure, 

 through the efforts of industry, Government and institutional research. How- 

 ever, resolution of the fundamental problems in the legal area will be determined, 

 primarily, through various Government procedures. These problems include 

 the formalization of the limits of U.S. sovereignty and the clarification of State 

 versus Federal rights ; mechanisms for obtaining land titles and mineral rights ; 

 the status of patents under Government research contracts; and the develop- 

 ment of safety standards, insurance coverage and regulation. 



These hearings, and the number of bills that have been introduced are ample 

 evidence that Congress also is concerned with the current status and the pros- 

 pective future progress of our efforts in oceanography. Nevertheless, none of the 

 bills before you provides guidelines for creating the governmental administra- 

 tive and regulatory structures, now lacking in the legal area, which would facili- 

 tate and encourage the development of the ocean's resources. 



The fact that the Nation does have a large and growing program, both govern- 

 mental and private in ocean-related business should be carefully considered. 

 The haste with which we embarked on the governmental space program is not ap- 

 propriate in oceanography where major efforts are already underway. The vast 

 amounts of capital, research, and manpower that were a necessity before that 

 first giant leap into space could be accomplished are not required in oceanography, 

 where, as new knowledge is gained, we proceed step by step. Further, by con- 

 trast with the situation in oceanography, there was practically no economic in- 

 centive in f^pace exploration and development ; Government provided the capital 

 and direction exclusively for defense and national prestige purposes. 



We conclude, therefore, that enactment of H.R. 9064, which provides for a 

 study commission with equal representation from government, industry, and 

 research organizations participating in oceanographic work, is the logical ap- 

 proach to the development of a sound long-range program. 



Dr. Clark. I would like to bring out a few key things that have 

 emerged from this study. 



The first point is that ocean-related activities are much bigger than 

 is commonly realized. I believe it is correct that the interests of this 

 committee concern all aspects of the ocean's resources, the develop- 

 ment and exploitation of these for tli© benefit of the country as a 

 whole. And if one defines his interest in this way and attempts to 

 identify business activities in this context, he finds a total of almost 

 $2 billion annually spent in these activities. 



I have made my own definition of what is and what is not included 

 in these figures. This does include the oil industry, the mining in- 

 dustry, the fisheries industry, and a part of the Navy's antisubmarine 

 warfare expenditures, that part concerned with work in the ocean's 

 depths. It also includes the scientific aspects of oceanography. 



This figure does not include shipping and the merchant marine, as 

 normally thought of, nor does it include rivers and harbors, and ac- 

 tivities of this type. . ... 



To put it differently, the to])ic of my discussion is activities asso- 

 ciated with the utilization of the ocean's depths as distinct from the 

 ocean's surface. 



As I said, this figure is nearly $2 billion. It is actually about $1.7 

 billion. The major elements of it : A half billion dollars for oil and 



