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Senate Report 119-114 - SUPPORTING THE HEALTH OF AQUATIC SYSTEMS THROUGH RESEARCH KNOWLEDGE AND ENHANCED DIALOGUE ACT OF 2025
[Senate Report 119-114]
[From the U.S. Government Publishing Office]
Calendar No. 349
119th Congress } { Report
SENATE
2d Session } { 119-114
_______________________________________________________________________
SUPPORTING THE HEALTH OF AQUATIC SYSTEMS THROUGH RESEARCH KNOWLEDGE AND
ENHANCED DIALOGUE ACT OF 2025
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 2314
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
March 4, 2026.--Ordered to be printed
______
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2026
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
second session
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROGER F. WICKER, Mississippi AMY KLOBUCHAR, Minnesota
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
TODD YOUNG, Indiana TAMMY DUCKWORTH, Illinois
TED BUDD, North Carolina JACKY ROSEN, Nevada
ERIC SCHMITT, Missouri BEN RAY LUJAN, New Mexico
JOHN CURTIS, Utah JOHN W. HICKENLOOPER, Colorado
BERNIE MORENO, Ohio JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia LISA BLUNT ROCHESTER, Delaware
CYNTHIA M. LUMMIS, Wyoming
Brad Grantz, Majority Staff Director
Lila Harper Helms, Democratic Staff Director
Calendar No. 349
119th Congress } { Report
SENATE
2d Session } { 119-114
=======================================================================
SUPPORTING THE HEALTH OF AQUATIC SYSTEMS THROUGH RESEARCH KNOWLEDGE AND
ENHANCED DIALOGUE ACT OF 2025
----------------
March 4, 2026.--Ordered to be printed
----------------
Mr. Cruz, from the Committee on Commerce, Science, and Transportation,
submitted the following
R E P O R T
[To accompany S. 2314]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 2314) to direct the Secretary
of Commerce to establish a task force regarding shark
depredation, and for other purposes, having considered the
same, reports favorably thereon without amendment and
recommends that the bill do pass.
Purpose of the Bill
The purpose of S. 2314, the SHARKED Act of 2025, is to
establish a task force representative of the fisheries
management and shark research community to identify and address
issues with respect to shark depredation and report those
findings to Congress.
Background and Needs
Shark depredation refers to the partial or complete removal
of a hooked fish by a shark before it can be landed, often
resulting in the loss or damage of the catch, destroyed gear,
and disrupted fishing operations.\1\ Depredation has been
observed across the Gulf of America and South Atlantic in
private recreational, for-hire, and commercial hook and line
fisheries, with reports of rising frequency.\2\ This phenomenon
has become an increasingly frustrating issue for both
commercial and recreational fishers, affecting economically
valuable species like red snapper, grouper, tuna, and mackerel,
leading to financial and operational costs.\3\ Fishermen report
damaged gear, lost catch, and time-consuming replacements of
bait and tackle.\4\ The South Atlantic Fisheries Management
Council has submitted multiple letters to the National Oceanic
and Atmospheric Administration's National Marine Fisheries
Service (NMFS) relaying concerns from commercial and
recreational fishermen about shark depredation and the negative
conservation impacts it is having on Council-managed species
and fisheries.\5\
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\1\NOAA Fisheries, ``Shark Depredation: A Frustrating Experience
for Fishermen in the Atlantic,'' feature story, June 4, 2024, https://
www.fisheries.noaa.gov/feature-story/shark-depredation-frustrating-
experience-fishermen-atlantic.
\2\NOAA Fisheries, Report to Congress: Interactions Between
Bottlenose Dolphins and Sharks and Commercial, For-Hire, and Private
Recreational Fisheries in the Gulf of Mexico and South Atlantic, August
2022, https://media.fisheries.noaa.gov/2022-08/NMFS-Assessment-Fishing-
Interference-RTC-08_29_22.pdf.
\3\``Taking a Bite: Shark Depredation and Fisheries Management,''
South Atlantic Fishery Management Council, December 1, 2023, https://
safmc.net/posts/taking-a-bite-shark-depredation-and-fisheries-
management/.
\4\Ibid.
\5\Ibid.
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Shark interactions with fisheries are complex, making it
difficult to determine the major factors contributing to the
increased frequency of shark depredation.\6\ There are several
factors that may be contributing to the rise in shark
depredation. Conservation efforts by NMFS under the Magnuson-
Stevens Act, for example, have increased the populations of
some shark species, which may be increasing the likelihood of
sharks interacting with anglers. Concurrently, the growing
number of recreational anglers has increased the number of
fishing lines in the water, as well as the number of fish
released, possibly attracting sharks by providing them with
more opportunities to exploit easy prey.\7\ In addition,
studies and anecdotal reports suggest that some shark species
have developed conditioned behavior, associating boat engines
and fishing activity with feeding opportunities.\8\
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\6\Ibid at 1.
\7\Ibid at 1.
\8\Ibid at 1.
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Fisheries managers and scientists are actively working to
better understand and mitigate shark depredation. NMFS, in
collaboration with regional fishery management councils and
academic institutions, has launched multiple research
initiatives.\9\ For example, Florida Atlantic University is
using DNA swabs from the lines of bitten fish to identify
depredating shark species and assess encounter rates.\10\ The
results of this collaboration have identified bull and sandbar
sharks as the most common depredating shark species, and
snapper and grouper species as the most frequently targeted
fish.\11\ In addition, the study found that finer scale factors
such as water depth, habitat type, fishing pressure, specific
fishing locations, and fishing techniques may play a more
direct role in determining depredation rates, rather than
broader seasonal or regional trends.\12\ In support of these
and other findings, NMFS plans to conduct stock assessments of
sandbar and bull sharks, explore improvements in data
collection systems, and fund research into cost-effective
solutions to limit shark depredation.\13\
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\9\Ibid at 2.
\10\Gisele Galoustian, ``Study Takes a `Bite' Out of Shark
Depredation Using Citizen Science,'' Florida Atlantic University,
February 11, 2025, https://www.fau.edu/newsdesk/articles/shark-
depredation-citizen-science.php.
\11\Ibid.
\12\Ibid at 10.
\13\Ibid at 1.
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Summary of Provisions
S. 2314 would direct the Secretary of Commerce to establish
a task force to address shark depredation.
Legislative History
S. 2314 was introduced on July 16, 2025, by Senator Scott
(FL) (for himself and Senator Schatz) and was referred to the
Committee on Commerce, Science and Transportation of the
Senate. On July 30, 2025, the Committee met in open Executive
Session and, by voice vote, ordered S. 2314 reported favorably
without amendment.
H.R. 207, an identical House bill, was introduced on
January 3, 2025, by Representative Wittman (for himself and
Representatives Webster, Soto, and Veasey) and was referred to
the Committee on Natural Resources of the House of
Representatives. Representative Donalds is an additional
cosponsor. On January 21, 2025, the House passed H.R. 207 by
voice vote.
118th Congress
H.R. 4051, the SHARKED Act, was introduced on June 12,
2023, by Representative Wittman (for himself and
Representatives Soto, Graves (LA), and Veasey) and was referred
to the Committee on Natural Resources of the House of
Representatives. Representatives Pappas and Webster were
additional cosponsors. On September 20, 2023, that Committee
met in open Executive Session and, by voice vote, ordered H.R.
4051 reported favorably with an amendment. On February 5, 2024,
H.R. 4051, as amended, passed the House by voice vote.
Estimated Costs
In accordance with paragraph 11(a) of rule XXVI of the
Standing Rules of the Senate and section 403 of the
Congressional Budget Act of 1974, the Committee provides the
following cost estimate, prepared by the Congressional Budget
Office:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
S. 2314 would require the National Oceanic and Atmospheric
Administration (NOAA) to establish a task force to identify
strategies to reduce shark depredation--the loss or damage of
hooked fish to sharks before an angler can reel them in. The
task force would include representatives from NOAA and
knowledgeable people from other federal and nonfederal entities
and would terminate seven years after its establishment.
Under the bill, the task force would coordinate research to
identify species most often involved in such interactions and
the migratory patterns and behavior of those species. It also
would develop recommendations to mitigate the toll of shark
depredation and communication methods to distribute the
information to fishing communities. The task force would need
to submit biennial reports to the Congress on its findings.
For this estimate, CBO assumes that S. 2314 will be enacted
in 2026 and that the task force will be established by the end
of fiscal year 2026. Using information from NOAA, CBO estimates
the costs for travel for the task force and for staff to
develop reports would be a little less than $500,000 for each
year and would total $2 million over the 2026-2030 period. Any
related spending would be subject to the availability of
appropriated funds. In 2024, NOAA allocated about $1 million
for research projects related to shark depredation, the most
recent year for which CBO can determine that such an allocation
was made.
The CBO staff contact for this estimate is Emilia Oliva.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
Regulatory Impact Statement
In accordance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee provides the
following evaluation of the regulatory impact of the
legislation, as reported:
number of persons covered
S. 2314, as reported, would not subject individuals to new
regulations. However, the task force that would be established
by S. 2314 could recommend new regulations as part of its
findings.
economic impact
S. 2314, as reported, is not expected to have any adverse
impacts on the Nation's economy. The bill could ultimately help
to reduce the loss or damage of catch, destroyed gear, and
disrupted fishing operations.
privacy
S. 2314, as reported, would not have any adverse impact on
the personal privacy of individuals.
paperwork
S. 2314, as reported, would not increase paperwork
requirements for private individuals or businesses. The bill
would require the task force to submit a report to Congress
regarding its findings no later than 2 years after the date of
enactment and every 2 years thereafter until the termination of
the task force.
Congressionally Directed Spending
In compliance with paragraph 4(b) of rule XLIV of the
Standing Rules of the Senate, the Committee provides that no
provisions contained in the bill, as reported, meet the
definition of congressionally directed spending items under the
rule.
Section-by-Section Analysis
Section 1. Short title.
This section would provide that the bill may be cited as
the ``Supporting the Health of Aquatic systems through Research
Knowledge and Enhanced Dialogue Act of 2025'' or the ``SHARKED
Act of 2025''.
Section 2. Shark depredation task force and research projects.
This section would direct the Secretary of Commerce to
establish a task force to identify and address critical needs
with respect to shark depredation, including developing ways to
improve coordination and communication across fisheries
management and shark research communities, identify research
priorities, develop management strategies to address shark
depredation, and coordinate the development and distribution of
educational materials to help the fishing community minimize
shark interactions.
This section would require the Secretary to appoint
individuals to the task force, including one representative
from each of the Regional Fishery Management Councils, one from
each Marine Fisheries Commission, one from the fish and
wildlife agency of each coastal State represented on the
Council, and one representative from the National Marine
Fisheries Service. The task force would also need to include an
expert in the management of highly migratory species, and
researchers with expertise in shark management, behavior, and
ecology.
This section would also direct the task force to submit a
report to Congress regarding its findings no later than 2 years
after the date of enactment and every 2 years thereafter until
the termination of the task force. The task force would be
terminated no later than 7 years after it is established.
This section would direct the Secretary to give priority to
projects that seek to better understand shark depredation when
awarding cooperative research and management programs under the
Magnuson-Stevens Fishery Conservation and Management Act.\14\
It would also clarify that nothing in this section shall be
construed to affect the authority and responsibility of the
Secretary in carrying out the Endangered Species Act of
1973\15\ or the Magnuson-Stevens Fishery Conservation and
Management Act.\16\
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\14\Public Law 94-265.
\15\Public Law 93-205.
\16\Public Law 94-265.
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Lastly, this section would define the term ``coastal
State''.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
the bill, as reported, are shown as follows (existing law
proposed to be omitted is enclosed in black brackets, new
material is printed in italic, existing law in which no change
is proposed is shown in roman):
MAGNUSON-STEVENS FISHERY CONSERVATION AND
MANAGEMENT ACT
* * * * * * *
[16 U.S.C. 1867(c); Public Law 94-265]
SEC. 318. COOPERATIVE RESEARCH AND MANAGEMENT PROGRAM.
(a) * * *
(b) * * *
(c) Funding.--In making funds available the Secretary shall
award funding on a competitive basis and based on regional
fishery management needs, select programs that form part of a
coherent program of research focused on solving priority issues
identified by the Councils, and shall give priority to the
following projects:
(1) Projects to collect data to improve,
supplement, or enhance stock assessments, including the
use of fishing vessels or acoustic or other marine
technology.
(2) Projects to assess the amount and type of
bycatch or post-release mortality occurring in a
fishery.
(3) Conservation engineering projects designed to
reduce bycatch, including avoidance of post-release
mortality, reduction of bycatch in high seas fisheries,
and transfer of such fishing technologies to other
nations.
(4) Projects for the identification of habitat
areas of particular concern and for habitat
conservation.
(5) Projects designed to collect and compile
economic and social data.
(6) Projects to better understand shark
depredation, including identifying what causes
increases in shark depredation and determining how to
best address shark depredation.
(d) * * *
(e) * * *
(f) * * *
* * * * * * *
[all]