Chapter I THE FEDERAL OCEAN PROGRAM: National security, the quality of life, and the general welfare are the chief concerns that underlie the Federal Ocean Program. Security implies economic as much as it does military strength. Economic strength is also essential to the enhancement of the quality of life, a concept difficult to define precisely but clearly dependent upon freedom of choice, both now and in the future. Decreasing conflict, strengthening the economy, and protecting the environment all act to improve the general welfare and to increase freedom of choice. These goals guide the determination of the priority components of the Federal Ocean Program, within the broader constraints imposed by limits on available resources. Because the national goals upon which the Federal Ocean Program is based are long-term goals, the nature of the contributing elements of the program may not change significantly from year to year. Program emphasis, however, may shift somewhat from time to time, in response to changes in priorities. This report features the contributions of the Federal Ocean Program to the fulfillment of two major national goals: the promotion of international cooperation and accord, and the development of new sources of energy to support our economy. These highlights are followed by reviews of major supporting elements that contribute broadly to the solution of continuing program needs or problems: description and prediction of the ocean environment in which the programs are to be carried out, and technological developments in support of the programs, with special emphasis on advances in data acquisition. America is a seagoing nation with great dependence on the oceans that surround it. We can take pride in our past leadership and our accomplishments in marine science and engineering. International Marine Affairs The oceans, because of their inherently international character, their ready accessibility to many states, and their valuable resources, have long been major areas for conflict, both military and commercial. Advances in ocean science and technology have contributed to a growth of the potential for conflict, but these advances are also contributing opportunities for increased international cooperation, in such fields as research, environmental monitoring, reduction of pollution, development of energy and mineral resources, conservation and management of fisheries, and the promotion of safety and efficiency in maritime transportation. The past year has been one of increasingly significant activity in international marine affairs, both within the United Nations and independently of it. The concerns of most widespread interest throughout the world are primarily the economic aspects of resource management and pollution abatement. Some encouraging steps have been taken to improve cooperation in solving questions of fisheries conservation and pollution control, although economic nationalism appears to be playing an increasing role in the politics of the oceans. The widespread conflicts generated over boundaries and regimes for control of fishing and mineral resources development impinge upon the interests of the developed maritime nations with respect to transport and trade, military security, and scientific research. Progress, under the auspices of the various international fisheries commissions, at the Stockholm Conference on the Human Environment and related meetings, and in bilateral cooperative research programs, is a feature of this year's report on the Federal Ocean Program. There still remain many important problems, however, in the UN Seabeds Committee and elsewhere. Preparations for the UN Conference on the Law of the Sea in 1973 and 1974 will continue to be a major activity in marine affairs. Energy A plentiful and assured supply of energy to support our economy is essential to the preservation of both national security and the quality of life. In the long term we anticipate increasing reliance upon nuclear energy, but short-and medium-term needs will require increasing use of fossil fuels, although our "onshore" petroleum production and reserves are declining rapidly relative to anticipated demand. Increasing use of coal is expected, but economy, convenience, and pollution control considerations dictate increasing dependence upon "offshore" sources of petroleum as well: the Eastern Hemisphere, Alaska, and the Outer Continental Shelf. In support of these urgent requirements, the Federal Ocean Program currently includes accelerated economic, engineering, and environmental studies of domestic deepwater ports and offshore terminals for supertankers. These will be required for the importation of large quantities of oil from the Eastern Hemisphere at minimum cost both to the economy and to the environment. It is anticipated, however, that construction and operation of such terminals will be left to the private sector or to local public authorities. The requirement for importing oil from foreign sources can be reduced to some extent by increased production from Alaska and from the U.S. Outer Continental Shelf. Significantly enlarged studies of marine-related safety and pollution problems in production and transportation from these areas are components of the Federal program proposed for FY '74. Such studies will have an impact on accelerated leasing schedules on the OCS, as well as on the construction of deepwater ports. Fisheries, Transportation, and Coastal Zone Management Another important segment of the Federal program is support for the development of fisheries. Basic scientific studies and stock assessments and mapping have long been part of the program, not only as direct aids to the fishing industry, but also to provide the basis for more rational management and conservation. Closer attention is being paid to improving coordination and cooperation between the Federal Government and the States. As noted earlier, much effort has been devoted to improving international cooperation in the management of high-seas fisheries. As a result a large increase in the level of fishery treaty enforcement and surveillance activities is occurring in the current Federal program and will continue. The Secretary of Commerce's Marine Fisheries Advisory Committee, which is broadly representative of conservationists and commercial and sports fishermen, has urged high priority for this program as an effective means for protection of U.S. fisheries. An increase in the endangered species and marine mammals research programs is proposed, while support for the fish protein concentrate program has been discontinued. Marine transportation continues as an important component of the Federal program. One major element is the provision and maintenance of harbors and navigable waters. Another consists of advanced ship engineering development and programs for improved economy, safety, and pollution control. Programs directed toward improved management of the coastal zone, where industrial, residential, and recreational uses and conflicts continue to intensify, are aimed at wise and efficient longterm use of coastal resources. Coastal zone programs include pollution abatement and control, conservation and recreation activities, and comprehensive regional environmental systems research. The key to the solution of many coastal zone management problems. is proper planning of land and water use. Recent legislation provides the impetus toward Federal technical and financial assistance to the States for this purpose. This serves as a critical first step along the way toward establishing more general land use policies. Additional information on agency programs and budgets in the areas of international cooperation and collaboration, living resources, transportation, and coastal zone management will be found in the appendices. Supporting Programs We turn next in this report from programs directly associated with major national goals to some of those that provide essential support for the primary programs. One of these is common to virtually all marine activities, whether military or civilian, whether on the high seas or in the coastal zone, whether aimed at strengthening the economy or preserving the amenities: adequate description and prediction of the environment in which these activities take place. Observation and forecasting of the impact of the environment upon man's activities, as well as of man's activities upon the environment, are major elements of the Federal Ocean Program. Mapping, charting, and related data gathering activities in support of navigation, marine resource development, coastal zone management, naval operations, pollution studies, and the like continue to constitute a major portion of the overall program. These activities are also showing continuing needs for improved environmental forecasts, such as those provided by marine weather services. An increase in total funding and some shifts in relative priorities within the overall environmental description and prediction program is proposed for FY '74. An increase in nautical charting and coastal mapping budget proposals is accompanied by a decrease in geophysical mapping. Overall fiscal constraints require reduction or suspension of some of the lower priority programs. Another major, multi-faceted supporting program is the development of the technology required to carry out primary programs. This includes, as part of the Federal Ocean Program, the development of satellite- or aircraft-borne remote sensing systems for gathering ocean-related data, as well as buoy-based data gathering systems. Technological developments are required for a wide variety of single- and multi-purpose applications. This report features developments in undersea technology for such applications as navigation, materials, construction, power sources, platforms, communications and control, salvage, and safety. An effort to provide improved manned and unmanned capabilities to perform research and other useful work at both diver depths and in the deep oceans is also being maintained. There have also been significant developments in other areas of marine technology, such as control of oily bilge-water discharge and other pollution from ships. Increasing needs for atmospheric and oceanographic environmental information are stimulating development and use of remote sensing from satellites. The satellite systems development program, a major cooperative effort of the National Aeronautics and |