For a foam-covered sea surface, it is difficult to retrieve sea surface salinity (SSS) with L-band brightness temperature (1.4 GHz) because of the effect of a foam layer with wind speeds stronger than 7 m/s, especially at low sea surface temperature (SST). With foam-controlled experiments, emissivities of a foam-covered water surface at low SST (−1.4 °C to 1.7 °C) are measured for varying SSS, foam thickness, incidence angle, and polarization. Furthermore, a theoretical model of emissivity is introduced by combining wave approach theory with the effective medium approximation method. 10914 the foam layer emissivity increments are discussed for frequencies between 1 and 37 GHz.