PROCEEDIN
Volume 1
Chicago, Illinois
Jan.31, Feb.1-2, Feb. 5-7,196
Executive Session
March 7, 8 and 12,1968
ILLINOIS
INDIANA s
Pollution of
Lake Michigan and its tributary basin
U. S. DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
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CONFERENCE
ON THE MATTER OP POLLUTION OF
LAKE MICHIGAN AND ITS TRIBUTARY BASINS
held In
Chicago, Illinois
CONFERENCE SESSIONS:
January 31, 1968
February 1, 1968
February 2, 1968
( February 5, 1968
February 6, 1968
February 7, 1968
EXECUTIVE SESSIONS:
March 7, 1968
March 8, 1968
March 12, 1968
TRANSCRIPT OF PROCEEDINGS
Federal Water Pollution Control Administration
U. S. Department of the Interior
Washington, D. C.
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CONTENTS
PAGE
CONFERENCE SESSIONS:
January 31, 1968
Morning Session 2
Afternoon Session.., 137
February 1, 1968
Morning Session 463
Afternoon Session 751
February 2, 1968
Morning Session 1122
Afternoon Session 1314
February 5, 1968
Morning Session 1538
Afternoon Session 1732
February 6, 1968
Morning Session 2188
Afternoon Session 2376
February 7, 1968
Morning Session 2874
EXECUTIVE SESSIONS:
March 7, 1968
Morning Session 3264
Afternoon Session 3408
March 8, 1968
Morning Session 3583
March 12, 1968
Morning Session 3747
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1-B
1 CONTENTS (CONTINUED)
2 PROCEEDINGS; PAGE
3 OPENING STATEMENT AND WELCOME
Hon. Richard D. Daley,
4 Mayor, City of Chicago 84
5 ADDRESS OF WELCOME
Hon. Otto Kerner,
6 Governor, State of Illinois 93
7 STATEMENT BY
Hon. Max N. Edwards,
8 Assistant Secretary,
U. S. Department of the Interior 96
9
STATEMENT OP
10 Hon. Stewart L. Udall,
Secretary,
11 U. 3. Department of the Interior.. 98
12 i STATEMENT BY
Hon. Gaylord Nelson,
13 The United States Senate,
State of Wisconsin 112
14
STATEMENT BY
15 Hon. Otto Kerner,
Governor, State of Illinois 127
16
STATEMENT BY
17 Hon. William G. Milliken,
Lieutenant Governor,
18 State of Michigan 137
19 • CHAIR ASSUMED BY
i Murray Stein,
20 Assistant Commissioner for Enforcement,
Federal Water Pollution Control Adm.,
2i U. S. Department of the Interior 146
22
INTRODUCTION OF CONFEREES 14?
23 TELEGRAM FROM
Hon. Charles H. Percy,
24 The United States Senate,
State of Illinois 151
25
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I CONTENTS (CONTINUED)
2 PROCEEDINGS (CONTINUED); PAGE
3 STATEMENT OF
Hon. Philip A. Hart,
4 The United States Senate,
State of Michigan 153
5
STATEMENT OF
6 Hon. Sidney R. Yates,
U. S. House of Representatives,
7 State of Illinois 158
8 STATEMENT OF
Hon. Daniel J. Ronan,
9 U. S. House of Representatives,
State of Illinois 160
10
STATEMENT OF
Hon. Roger D. Branigin,
Governor, State of Indiana 163
12 STATEMENT BY
13 R. G. Lynch,
Chairman, Natural Resources Board,
State of Wisconsin 168
14
15 STATEMENT BY
Franklin D. Yoder, M.D.,
lg Director, Illinois Department of Health,
17 STATEMENT OF
Hon. Frank or. Kelley
18 Attorney General,
State of Michigan l8l
19
STATEMENT BY
Hon. Max N. Edwards,
Assistant Secretary,
21 U. S. Department of the Interior,
22 STATEMENT OF
Hon. Dan Rostenkowski,
23 U. S. House of Representatives,
State of Illinois 1609
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25
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1 CONTENTS (CONTINUED)
2 PROCEEDINGS (CONTINUED); PAGE
3 STATEMENT OF
Hon. Roman C. Pucinski,
4 U. S. House of Representatives,
State of Illinois » 1612
5
STATEMENT OF
6 Hon. John C. Kluczynski,
U. S. House of Representatives,
7 State of Illinois 2C4l
8 STATEMENT BY
Hon. Warren P. Knowles,
9 Governor, State of Wisconsin. 2397
10
11 - - -
12
FEDERAL PRESENTATION!
13
Walter Kiechel, Jr 402
14
Raymond F. Clevenger 409
15
Charles H. Stoddard 443
16
U. S. Bureau of Mines 448
17 I
U. S. Geological Survey 451
18
H. W. Poston 475
19
R. J. Schneider 482
20
Federal Report 523
21
Dr. A. F. Bartsch 649
22
Report, "Water Quality Investigations,
23 Lake Michigan Basin, Biology" 652
24 I Dr. Donald J. Baumgartner ?6l
25 Dr. Leon W. Weinberger 812
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1 CONTENTS (CONTINUED)
2 FEDERAL PRESENTATION (CONTINUED); PAG5
3 R. J. Schneider,
Cone lusions and Recommendations 878
4
"Inventory Information
5 Waste Sources in the Lake
Michigan Basin, January 1968'' 892
6
W. P. Carbine 1062
7
Srnest D. Premetz 1095
8
Captain G. H. Shepard 1405
9
Mrs. Donald 2. Clusen - 1415
10
League of Women Voters of Indiana 1425
11
League of Women Voters of Illinois 1430
12
League of Women Voters of Michigan 1436
13
League of Women Voters of Wisconsin 1480
14
League of Women Voters of United States i486
15
Izaak Walton League, Calumet Region Chapter.... 1496
16
U. S. Forest Service 1498
17
Bureau of Outdoor Recreation 1511
18
Bureau of Sport Fisheries and Wildlife 1520
19 i
General Federation of Women • s Clubs 1528
20
Donald W. Marshall 2086
21
Federal Committee on Pest Control 3122
22
Verne M. Bathurst 3128
23
R. J. Schneider,
24 Discussion on Conclusions and Recommendations.. 3135
25 Brigadier General Robert M. Tarbox 1205
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1 CONTENTS (CONTINUED)
2 INDUSTRY PRESENTATION; PAGE
3 R. C. Mallatt. 752
4
5 ILLINOIS PRESENTATION;
6 Douglas Morton 1125
7 James W. Jardine 1142
8 Richard A. Pavia 1162
9 Hon. William G. Clark 1249
10 Francis S. Lorenz 126?
11 Carl L. Klein 1286
12 "Report on Lake Michigan Pollution" 1288
13 Hon. Harold A. Kat* 1315
i4 Robert Johnston 1333
15 Aimer J. Mikva 1339
lfi John M. Trinka 1349
17 Raymond E. Anderson 1361
18 John Henry Kleine 1385
19 Paul Simon 1389
20 James C. Vaughn 1538
21 Clarke.W. Mangun, Jr., M.D,. I6l8
22 Dr. Allan Pilek 1622
23 Waukegan Water and Sewer Department 1644
24 Thomas G. Ayers 164?
25 William C. Ackermann 1655
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1 CONTENTS (CONTINUED)
2 ILLINOIS PRESENTATION (CONTINUED); PAGE
3 Mathon Kyrltsia 1674
4 Daniel M. Pierce 1686
5 Village of Wlnnetka 1690
Q Gerhard M. Scheme 1 1694
7 Harvey Tenner 1721
8 Illinois Boating Association..... 1726
9 Ron Stone 1732
10 "A Model Act to Prohibit Littering and the
Disposal of Untreated Sewage from Boats".. 1754
Joseph Chantigney 1806
12
Donald Matschke 1810
13 rt
Donald J. Bergman 1820
I* « «
Mrs. Eileen L. Johnston 1858
15
Hon. Robert McGlory 1865
16
C. W. Klassen,
17 Summary Statement 1875
18 City of Chicago Ordinance 1898
19 Hon. Donald Rumsfeld 1903
20 The Wllmette Park District 1909
21 Lake County Health Department 1912
22 Illinois Audubon Society 1917
23 Dr. W. J. Beecher 1920
24 John E. Sgan 2282
25 Walter S. Baltis 3246
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1 CONTENTS (CONTINUED)
2 ILLINOIS PRESENTATION (CONTINUED); PAGS
3 William A. Riaakl 3249
4 C. W. Klassen 3257
5
6 INDIANA PRES3NTATION:
7 Perry Miller 1926
g Hon. John J. Dillon 2032
9 Mrs. Marjory Crawford 2036
10 E. Eugene Minney 2042
11 Wayne C. Stapf 2069
12 ' Mrs. Florence Murray 2082
13 H. LaBrant 3117
14
15 MICHIGAN PRESENTATION:
16 John Vogt 2188
17 Dr. Ralph A. MacMullan 2252
18 John Calkins 2292
19 Peter I. Tack 2306
20 John H. Kennaugh, 2318
21 Leonard J. Goodsell 2336
22 James L. Rouman 2347
23 John C. McCurry 2354
24 George Dlesk 2358
25 A. R. Balden 2369
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1 CONTENTS (CONTINUED)
2 WISCONSIN PRESENTATION (CONTINUED); PAGE
3 Wisconsin Wildlife Federation 2875
4 Wisconsin Resource Conservation Council 2877
5 city of South Milwaukee 2878
6 Milwaukee Harbor Commission 2881
7 Robert A. Ewens 2887
8 Richard M. Billings 2904
9 Herbert Moore 3005
10 Gerald Paul 3014
11 0. A. Jahnke 3033
12 Freeman Holmer 3036
13 "Excessive Water Fertilization" 3048
14 Mrs. Robert G. Erickson 3238
15 Sierra Club, John Muir Chapter 3239
16 Mrs. Tom Helmbrecht 3241
17
18 EXECUTIVE SESSION:
19 Appearances 3264
20 Remarks by Dr. Bregman 3277
21 CONCLUSIONS:
22 No. 1 3282
23 No. 2 3284
24 NO. 3 3294
25 NO. 4 3307
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1 CONTENTS (CONTINUED)
2 EXECUTIVE SESSION (CONTINUED): PAGE
3 CONCLUSIONS (CONTINUED):
4 No. 5 and 6 3314
5 No. 7 3324
6 No. 8 3325
and 334?
7
No. 9 3333
8
No. 10 3335
9 and 3773
10 No. 11 3358
11 No. 12 3376
12 No. 13 3379
13 No. 14 3392
14 No. 15 * 3399
15 No. 16 3752
and 3774
16
RECOMMENDATIONS:
17
Wisconsin suggestions 3409
18
No. 1 3469
19 3755
3774
20 and 3785
21 No. 2 3469
3757
22 and 3779
23 No. 3 3521
3759
24 and 3788
25 No. 4 3532
3764
IL and 3791
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CONTENTS (CONTINUED)
EXECUTIVE SESSION (CONTINUED); PAGE
RECOMMENDATIONS (CONTINUED):
No. 5 3536
and 3764
No. 6 3539
3764
and 3795
No. 7 3547
3765
and 3797
No. 8 3549
3765
and 3798
No. 9 3556
3765
and 3798
No. 10 3566
3766
and 3798
No. 11 3575
3800
3819
and 3855
No. 12 , 3583
and 3837
No. 13 3594
3691
3857
and 3883
No. 14 3594
and 3864
No. 15 3607
and 3884
No. 16 3622
and 3891
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EXECUTIVE
RECOMME
No
No
No
No
No
No
No
No
No
No
No
No
No
No
No
CONTENTS (CONTINUED)
SESSION (CONTINUED):
NDATIONS (CONTINUED):
. 17
. 18
. 19
. 20
. 21
. 22
, 23
. 19 in Federal Report ..........
. 24
. 25 and 26
. 27 and 28
. 29
. 30 , 31 and 32
. 33
PAGE
3639
and 3893
3646
and 3893
3652
and 3895
3662
and 3855
3664
and 3896
366?
and 3898
3670
and 3900
3675
3677
3699
and 3906
3699
and 3908
3699
3707
3731
3576
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1 CONTENTS (CONTINUED)
2 EXHIBITS: PAGE
3 1 - "Studies on the Environment and
Eutrophication of Lake Michigan" 193
4
2 - "Eutrophication of the St. Lawrence
5 Great Lakes" 699
6 3 - "Indices of Great Lakes Eutrophication" 699
7 4 - "Changes in the Environment and
Biota of the Great Lakes" 699
8
5 - "Lake Currents" 769
9
6 - Slides shown by General Tarbox 1206
10
7 - "Pure Water, Volume XVII, Number 1, 1965"... 1539
11
8 - Film shown by Mathon Kyritsis 1680
12
9 - "Report of Water Quality Criteria Calumet
13 Area-Lower Lake Michigan, January 1966".... 1885
14 10 - Wisconsin Program. 3041
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The Conference on
the Matter of Pollution
of Lake Michigan, and its Tributary Basins,
vened at 11 o'clock a.m., on
the Sherman House, Chicago,
PRESIDING:
Hon. Max N. Edwards, As
U. S. Department of the
Washington, D. C.,
and
Murray Stein
Asst. Commissioner for
Federal Water Pollution
U. S. Department of the
Washington, D. C.
ALSO PRESENT:
Hon. Joe G. Moore, Jr.,
Federal Water Pollution
U. S. Department of the
Washington, D. C.
CONFEREES :
FEDERAL:
H. W. Poston, Regional
Great Lakes Region
Federal Water Pollution
U. S. Department of the
Chicago, Illinois
con-
January 31, 1968, at
Illinois.
sistant Secretary
Interior
Enforcement
Control Adminis
Interior
Commissioner
Control Adminis
Interior
Director
Control Adminis
Interior
tration
tration
tration
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CONFEREES (CONTINUED):
STATE OP ILLINOIS:
Clarence W. Klassen, Technical Secretary
Illinois Sanitary Water Board
Springfield, Illinois
Alternates:
Franklin D, Yoder, M.D., Director
State Department of Public Health
and
Chairman, Illinois Sanitary Water Board
Springfield, Illinois
Dr. C. S. Boruff
Illinois Sanitary Water Board
Peoria, Illinois
STATE OF INDIANA:
John E. Mitchell, Director
Indiana Department of Natural Resources
Indianapolis, Indiana
Blucher Poole, Technical Secretary
Indiana Stream Pollution Control Board
Indianapolis, Indiana
Alternates:
Colonel Charles L. Sidle, Chairman
Indiana Stream Pollution Control Board
Fort Wayne, Indiana
Perry E. Miller, Asst. Director
Sanitary Engineering
Indiana State Board of Health
Indianapolis, Indiana
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1 CONFEREES (CONTINUED):
2
STATE OF MICHIGAN:
3
Loring F. Oeming, Executive Secretary
4 Michigan Water Resources Commission
Lansing, Michigan
5
George F. Llddle, Sr., Chairman
6 Michigan Water Resources Commission
Muskegon, Michigan
7
Alternates:
S
Ralph W. Purdy, Chief Engineer
9 Michigan Water Resources Commission
Lansing, Michigan
10
John Vogt, Chief
H Division of Engineering
Michigan Department of Public Health
12 Lansing, Michigan
13
14 STATE OF WISCONSIN:
15 Freeman Holmer, Administrator
Division of Resource Development
16 Department of Natural Resources
Madison, Wisconsin
17
Russell G. Lynch, Chairman
lg Wisconsin Natural Resources Board
Wauwatosa, Wisconsin
19
Lester P. Voigt, Secretary
20 Department of Natural Resources
Madison, Wisconsin
21
Alternates:
22
Thomas G. Frangos, Director
23 Bureau of Water Resources
Wisconsin Department of Natural Resources
24 Madison3 Wisconsin
25
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1 CONFEREES (CONTINUED):
2
STATE OF WISCONSIN (CONTINUED):
3
Alternates (Continued):
4
Theodore F. ¥isniewski
5 Assistant to the Administrator
Division of Resource Development
6 Department of Natural Resources
Madison, Wisconsin
7
8
PARTICIPANTS:
9
FEDERAL PRESENTATION:
10
A. F. Bartsch, Chief
11 Eutrophication Research
Federal Water Pollution Control Administration
12 Pacific Northwest Water Laboratory
Corvallis, Oregon
13
Verne M. Bathurst, State Conservationist
14 U. S. Soil Conservation Service
East Lansing, Michigan
15
Donald J. Baumgartner, Sanitary Engineer
16 Federal Water Pollution Control Administration
Pacific Northwest Water Laboratory
17 Corvallis, Oregon
18 0. M. Bishop, Area Director
Area III, U. S. Bureau of Mines
19 Twin Cities Airport, Minnesota
20 W. F. Carbine, Regional Director
U. S. Bureau of Commercial Fisheries
21 Ann Arbor, Michigan
22 Raymond F. Clevenger, Chairman
Great Lakes Basin Commission
23 Ann Arbor, Michigan
24
25
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1 PARTICIPANTS (CONTINUED):
2 FEDERAL PRESENTATION (CONTINUED):
3 Mrs. Donald Clusen, Director
Water Resources
4 League of Women Voters of the U.S.
Washington, D. C.
5
Walter Kiechel, Jr., Asst. Chief
6 Water Resources Unit
U. S. Department of Justice
7 Land & Natural Resources Division
Washington, D. C.
8
Roman H. Koenings, Regional Director
9 Bureau of Outdoor Recreation
Ann Arbor, Michigan
10
Donald F. LaPointe, Asst. Supervisor
11 Division of River Basin Studies
U. S. Department of the Interior
12 Bureau of Sport Fisheries and Wildlife
Minneapolis, Minnesota
13
R. C. Mallatt
14 Coordinator of Air & Water Conservation
American Oil Company
15 Chicago, Illinois
16 Donald W. Marshall, P.E.
Regional Program Chief
17 WSSR Public Health Service
Department of Health, Education & Welfare
18 Region V
Chicago, Illinois
19
Ernest D. Premetz, Deputy Regional Director
20 Bureau of Commercial Fisheries
U. S. Department of the Interior
21 Ann Arbor, Michigan
22 Robert J. Schneider, Deputy Regional Director
Great Lakes Region
23 Federal Water Pollution Control Administration
Chicago, Illinois
24
25
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1 PARTICIPANTS (CONTINUED):
2 FEDERAL PRESENTATION (CONTINUED):
3 G. R. Shepard, Captain
U. S. Navy
4 9th Naval District
Naval Training Center
5 Great Lakes, Illinois
5 Charles H. Stoddard, Regional Coordinator
Upper Mississippi Western Great Lakes Area
7 Duluth, Minnesota
g R. M. Tarbox, Brig. General
Engineering Division
9 North Central Division
U. S. Army Corps of Engineers
10 Chicago, Illinois
U Dr. William M. Upholt, Executive Secretary
Federal Committee on Pest Control
12 Washington, D. C.
13 Leon W. Weinberger, Asst. Commissioner
Research and Development
14 Federal Water Pollution Control Administration
Washington, D. C.
15
ILLINOIS PRESENTATION:
16
William C. Ackermann, Chief
17 Illinois State Water Survey
18
Raymond E. Anderson, General Manager
19 North Shore Sanitary District
Waukegan, Illinois
20
Thomas G. Ayers, President
21 Chicago Association of
Commerce and Industry
22 and
President, Commonwealth Edison Company
23 Chicago, Illinois
24 Dr. W. J. Beecher, Director
Chicago Academy of Science
25 Chicago, Illinois
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PARTICIPANTS (CONTINUED)
ADDITIONAL FEDERAL PRESENTATIONS (CONTINUED)
Mrs. Alva Appleby
Chairman, Pollution Division
General Federation of Women's Clubs
Skowhegan, Maine
Grover Cook
Division of Enforcement Program
Great Lakes Region, FWPCA, U.S. Department of the Interio
Chicago, Illinois
John Chura, resident
Calumet Regional Chapter of the Izaak Walton League
of America, Illinois
George S. James, Regional Forrester
Eastern Region, U.S. Forest Service
Department of Agriculture
Milwaukee, Wisconsin
Wayne C. Stapf, Secretary
Izaak Walton League of Indiana
Indiana
Hon. Stewart L. Udall
Secretary of the Interior
U.S. Department of the interior
Washington, D. C.
Eugene Minney, President
Izaak Walton League of America
Indiana
Mrs. Robert Zilly
State Chairman - Water Resources
League of Women Voters of Michigan
Stensville, Michigan
Jacob I. Bregman, Deputy Assistant
Secretary of the Interior for Water Pollution Control
Washington, D. C.
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1 PARTICIPANTS (CONTINUED):
2 ILLINOIS PRESENTATION (CONTINUED):
3 Donald J. Bergman
Committee on Lake Michigan Pollution
4 Winnetka, Illinois
5 Harry V. Bierma, Chairman
Clean Stream Committee
6 Illinois Audubon Scoiety
Chicago, Illinois
7
Joseph T. Chantigney, Chairman
8 Great Lakes Izaak Walton League of America
Dolton, Illinois
9
William G. Clark, Attorney General
10 State of Illinois
Chicago, Illinois
11
Honorable Richard D. Daley
12 Mayor
Chicago, Illinois
13
L. C. Dorake,. Superintendent
14 Waukegan Water Utility
Waukegan, Illinois
15
John E. Egan, President
16 Metropolitan Sanitary District
of Greater Chicago
17 Chicago, Illinois
18 L. A. Ellis, Village Manager
Village of Winnetka
19 Winnetka, Illinois
20 Dr. Allan Filek, Public Health Director
Evanston-North Shore Health Department
21 Evanston, Illinois
22 H. R. Prye, Superintendent
Water & Sewers, City of Evanston
23 Evanston, Illinois
24 H. H. Gerstein, Consulting Engineer
Alvord, Burdick & Howson
25 Chicago,Illinois
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1 PARTICIPANTS (CONTINUED):
2 ILLINOIS PRESENTATION (CONTINUED):
3 Prank Heyes, President
Illinois Boating Association
4 Chicago, Illinois
5 James W. Jardine, Commissioner
Water & Sewers, City of Chicago
6 Chicago, Illinois
7 Mrs. Eileen L, Johnston
League of Women Voters of Wilmette
8 Wilmette, Illinois
Robert Johnston, Director
United Auto Workers, Region 4
Chicago, Illinois
11 Harold A. Katz, State Representative
State of Illinois
12 Chicago, Illinois
13 Honorable Otto Kerner
Governor
I4 State of Illinois
Carl L. Klein, State Representative
Water Pollution & Water Resources Commission
Chicago, Illinois
John Eenry Kleine, State Representative
Chairman, Northern Illinois Water
Resources & Conservation Commission
Lake Forest, Illinois
19
Mathon Kyritsis,, Commercial Fisherman
20 Fishing Commission, State of Illinois
Waukegan, Illinois
21
William T. Lodge^ Director
22 Illinois Department of Conservation
Springfield, Illinois
23
Francis S. Lorenz, Director
Department of Pub
State of Illinois
24 Department of Public Works & Buildings
25
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1 PARTICIPANTS (CONTINUED^:
2 ILLINOIS PRESENTATION (CONTINUED):
3 Clark W. Mangun, Jr., M.D , Chairman
Subcommittee on Environmental Health
4 Illinois State Medical Society
Chicago, Illinois
.5
Donald E. Matschke, General Chairman
6 Cook County Clean Streams Committee
Hinsdale, Illinois
7
Abner J. Mikva
8 208 South LaSalle Street
Chicago, Illinois
9
D. B. Morton, Sanitary Engineer
10 Chief of Bureau of Stream Pollution Control
Illinois Sanitary Water Board
11 Springfield, Illinois
12 Richard A Pavia
Asst. Commissioner of Water & Sewers
13 City of Chicago
Chicago, Illinois
14
Daniel M. Pierce, State Representative
15 32nd District, Illinois Legislature
Highland Park, Illinois
16
Edward A. Quigley
17 Deputy Commissioner for Sewers
Bureau of Water & Sewers
18 City of Chicago
Chicago, Illinois
19
Howard ?. Saiger, Director
20 Division of Environmental Health
Lake County Health Department
21 Waukegan, Illinois
22 Gerhard M. Schemel, Commodore
Lake Michigan Yacht Association
23 Chicago, Illino s
24 Paul Simon, State Senator
53rd District
25 State of Illinois
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1 PARTICIPANTS (CONTINUED):
2 ILLINOIS PRESENTATION (CONTINUED):
3 Ron Stone, Director
Government Relations Department
4 Outboard Boating Club of America
Chicago, Illinois
5
Harvey 0. Tenner, Pollution Coordinator
6 Illinois Federation of Sportsmen's Clubs
Oak Park, Illinois
7
John M. Trinka, Director
8 Special Services, Chicago Park District
Chicago, Illinois
9
James C. Vaughn, Engineer
10 Water Purification
Department of Water & Sewers
11 City of Chicago
Chicago, Illinois
12
INDIANA PRESENTATION:
13
Marjory Crawford Hon. Roger Branitoan
14 Council Member of the Board Governor of Indiana
Save the Dunes Council Indiana
15 Chesterton, Indiana
Hon. John Dillon
16 H. LaBrant Attorney General
Whiting, Indiana Indiana
17
Mrs. Florence Murray, Inspector
18 Indiana Division of Labor
Michiana Shores
19 Michigan City, Indiana
20 MICHIGAN PRESENTATION:
21 A. R. Balden, Chairman Clair Aik«n, Vice Pres.
Natural Resources Committee Mich. Society of Prof.
22 Michigan Chamber of Commerce Engineers, Lansing, Mich,
Lansing, Michigan
23
John Calkins, Deputy Director
24 Michigan Department of Agriculture
Bruce C. Brown, Exec. Secretary
Mich. Society Planning Officials
Holt, Michigan
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PARTICIPANTS (CONTINUED):
2
ADDITIONAL ILLINOIS PRESENTATION (CONTINUED)
3
George Dlesk, Senior Vice President
4 Packaging Corporation of America
Evanston, Illinois
5
Robert B. Gerrie, President
6 Board of Commissioners
Wilmette Park District
7 Wilmette, Illinois
Hon. John C. Kluczynski
U.S. House of Re]
Washington, D.C.
a
U.S. House of Representatives
9
Hon. Charles H. Percy
U. S. Senate
Washington, D.C.
10 U. S. Senate
11
Hon. Roman C. Pucinski
U.S. House of Representatives
Washington, D.C.
13
Hon. Danial J. Ronan
U. S. House of Representatives
Washington, D.C.
15
Hon. Dan Rostenkowski
U. S. House of Representatives
Washington, D.C.
17
Hon. Donald Rumsfeld
U. S. House of Representatives
Washington, D.C.
19
Hon. Sidney R. Yates
U. S. House of Representatives
Washington, D.C.
21
Willian A. Riaski, Executive Director
Izaak Walton League of America
Glenview, Illinois
23
24
25
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12
1 PARTICIPANTS (CONTINUED):
2 MICHIGAN PRESENTATION (CONTINUED):
3 Roy Calvin, Director of Public Relations
Martin Marietta Corporation
4
5 Keith Chambers, President
Southern Lake Michigan Fishermen's Corp.
6 Holland, Michigan
7 Mrs. Miriam G. Dahl, State Chairman
Pollution Item
g Izaak Walton League of America
Wisconsin Division
9 Milwaukee, Wisconsin
10 George Dlesk, Senior Vice President
Packaging Corporation of America
11 Evanston, Illinois
12 Colonel Leonard J. Goodsell
Executive Director, Great Lakes Commission
13 Ann Arbor, Michigan
14 John H. Kennaugh, Executive Secretary
Michigan Grand River Watershed Council
15 Lansing, Michigan
16 John Kinney, Consulting Engineer
Dunbar & Sullivan Dredging Company
17
18 Charles H. Kupsky, General Manager
Parke-Davis Company
19 Detroit, Michigan
20 William 0. Lagoni, Lagonl & Davis, Attys.
Chairman, Park Committee
21 City of Bridgeman
Bridgeman, Michigan
22
Ralph A. MacMullan, Director
23 Michigan Conservation Department
Lansing, Michigan
24 S.R. Dunnuck, Secretary of Berrien Co.
Chapter of Michigan Watershed
25 Niles, Michigan
Hon. Frank J. Kelley. Attorney General, Michigan
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13
1 PARTICIPANTS (CONTINUED):
2 MICHIGAN PRESENTATION (CONTINUED):
3 John C.McCurry, General Manager
Michigan Manufacturers Association
4 Detroit, Michigan
5 Hon. William G. Milliken
Lieutenant Governor
State of Michigan
Nicholas V. Olds, Asst. Attorney General
State of Michigan
g Lansing, Michigan
9 Donald M. Pierce, Sanitary Engineer
Michigan Department of Public Health
10 Lansing, Michigan
James Taylor, City Superintendent
City of Charlevoix
12 Charlevoix, Michigan
13 James L. Rouman, Executive Director
Michigan United Conservation Clubs
14 Lansing, Michigan
15 Joseph B. Stinson, President
The Joseph B. Stinson Company
16 Fremont, Ohio
17 Peter Tack, Professor
Michigan Association, Construction Ecologist
18 Okemos, Michigan
19 Charles B. Wurtz, Consulting Biologist
Dunbar & Sullivan Dredging Company
Philadelphia, Pennsylvania
21 H. Wybenga, City Superintendent
City of Zeeland
22 Zeeland, Michigan
Norman Spring, Chairman
Michigan Pesticide Control
Grand Haven, Michigan
24
David Chandler, Prof, of Zoology
25 University of Michigan
Ann Arbor, Michigan
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1 i; PARTICIPANTS (CONTINUED):
2 WISCONSIN PRESENTATION:
3 Bob Angwall, President
Wisconsin Fishing Trawlers
4 Marinstte, Wisconsin
5 R. M. Billings, Asst. to Vice President
Research & Engineering
6 Kiaberly Clark Corporation
Neenah, Wisconsin
7
Mrs. Robert; G. Eriekscn
g Conservation Representative
Sierra Club
9 Racine, Wisconsin
10 Robert A. Ewens, Executive Vice President
Wisconsin Manufacturers Association
11 Milwaukee, Wisconsin
12 R. E. Gar row
Chicago Water Resources Standing Committee
13 Northeastern Regional Planning Commission
Fremont, Wisconsin
14
Ottmar A. Jahnke
15 Master & Pilot
Milwaukee, Wisconsin
16
Hon. Warren P. Knowles
17 Governor
State of Wisconsin
18
Herbert Moore, Consulting Engineer
19 Moore & Peterson
Milwaukee, Wisconsin
20
Hon. Gaylord Nelson
21 The United States Senate
State of Wisconsin
22
Gerald L. Paul, Hydrologist
23 Northeastern Wisconsin
Regional Planning Commission
24 Appleton, Wisconsin
25
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14a
i
1 PARTICIPANTS (CONTINUED):
2 WISCONSIN PRESENTATION:
3 H. C. Brockel, Municipal Port Director
Board of Harbor Commissioners
4 Milwaukee, Wisconsin
5 Hon. James C. Devitt
Member, Committee on Conservation
Milwaukee, Wisconsin
7 Martin Hanson
Secretary, Wisconsin Wildlife Confederation
8 Millen, Wisconsin
9 Mrs. Tom Helmbrecht
Mayrille, Wisconsin
10
Richard Hemp, Executive Director
Wisconsin Wildlife Federation
Mosinee, Wisconsin
12
Leo W. Roethe, President
13 Wisconsin Wildlife Federation
Mosinee, Wisconsin
14
City of South Milwaukee, Wisconsin
15
16
17
18
19
20
21
22
23
24
25
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15
1 OTHERS IN ATTENDANCE:
2 William L. Abott, Chief Radio Chemist
Federal Water Pollution Control Administration
3 Chicago, Illinois
4 Joseph F. Adamczyk, State Director
National Association of Power Engineers
6 Chicago, Illinois
6 J. H. Aeschliman
Public Relations Representative
7 International Harvester Company
Chicago, Illinois
8
Waro L. Akers, Sanitary Engineer
9 Illinois Sanitary Water Board
Springfield, Illinois
10
Orris E. Albertson, Marketing Manager
11 Dow Oliver, Inc.
Stamford, Connecticut
12
Helen Ann Amidon
13 Regina Dominican High School
Wilmette, Illinois
14
Arne H. Anderson, Branch Manager
15 Weyerhaeuser Company
White Pigeon, Michigan
16
Mrs. Daniel C. Anderson, Vice President
17 League of Women Voters of Cook County
Western Springs, Illinois
18
C. R. Andree, Vice President
19 Marsan Corporation
Chicago, Illinois
20
Robert W. Andrew, Jr., Research Chemist
21 Federal Water Pollution Control Administration
Duluth, Minnesota
22
Frank J. Angelos, Industrial Hygienist
23 Johns-Manville Products Corporation
Waukegan, Illinois
24
Hon. William Christy, Senator and Chairman
25 Conservation Committee
Hammond, Indiana
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16
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Anna Anroel
Evanston League of Women Voters
3 Evanston, Illinois
4 Ron Anton
Wisconsin Conservation Congress
5 Racine, Wisconsin
6 James Arkin, Immediate Past Chairman
Lake Michigan Region Planning Council
7 Chicago, Illinois
8 F. K.. Armour, Vice President Engineering
Interlake Steel
9 Chicago, Illinois
10 Mrs. Harold L. Aronson, Jr.
Water Chairman
11 League of Women Voters of Glencoe
Glencoe, Illinois
12
Mrs. Curtis 0. Arvold
13 League of Women Voters
Des Plaines, Illinois
14
R. C. Atkins, Technical Superintendent
15 DuPont Company
East Chicago, Indiana
16
B. R. Atkinson
17 Republic Steel
Cleveland, Ohio
18
Robert E. Arow, Jr., Plant Manager
19 Filter Materials Corporation
Lake Zurick, Illinois
20
Hank Babbitt
21 Lakeland Boating
Ann Arbor, Michigan
22
Vinton tf. Bacon, General Superintendent
23 Metropolitan Sanitary District of
Greater Chicago
24 Chicago, Illinois
25 Hon. James C. Devitt
Member, Committee on Conservation
Milwaukee, Wisconsin
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II
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. V. W. Bacon
2206 Kenilworth Avenue
3 Wilmette, Illinois
4 C. I. Baker, Director of Landscape
Chicago Park District
5 Chicago, Illinois
6 Edward F. Baldus, President
Joseph Witting Company
7 Milwaukee, Wisconsin
8 Neil Baldwin, Assistant Editor
Chemical & Engineering News
9 Chicago, Illinois
10 Samuel 0. Ball
Software Systems, Inc.
11 Falls Church, Virginia
12 Francis Barth, Asst. Attorney General
State of Illinois
13 Chicago, Illinois
14 William G. Barker, Manager
Waste Control Department
15 Abbott Laboratories
North Chicago, Illinois
16
Jack W. Barbee, Technical Manager
17 Mobil Oil Company
East Chicago, Indiana
18
Dean C. Bard, Sanitary Engineer
19 U. S. Air Force, Headquarters SAC
Offutt Air Force Base, Nebraska
20 |
Thomas C. Barry
21 Acting General Superintendent
Chicago Park District
22 Chicago, Illinois
23 George W. Batchelder
Clyde E. William & Associates
24 South Bend, Indiana
25
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18
1 OTHERS IN ATTENDANCE (CONTINUED):
2 E. M. Battey, Area Manager
INFILCO
3 Chicago, Illinois
4 Mrs. Russell Bauyuge, Jr.
League of Women Voters
5 Wilmette, Illinois
6 ! Robert Bayr
Interlake Steel Corporation
7 Riverdale, Illinois
8 Dale Bryson, Acting Director
Minneapolis Program Office
9 Federal Water Pollution Control Administration
Minneapolis, Minnesota
10
L. A. Beaudin, Chief
11 Construction Operations Division
North Central Division
12 U. S. Army
Chicago, Illinois
13
Wallace J. Beckman
14 Consoer Tovmsend & Associates
Chicago, Illinois
15
Dr. Lawrence P. Beer, Staff Engineer
16 Commonwealth Edison Company
Chicago, Illinois
17
George J. Behrens, Chief Engineer
18 U. S. Steel Corporation
Waukegan, Illinois
19
Stewart W. Benson, Vice President
20 Maccabee & Associates, Inc.
Chicago, Illinois
21
Hal Belkin
22 Associate Professor of Biology
Loop City College
23 | Highland Park, Illinois
24 Mrs. C.. V. Berger
4631 Lawn Avenue
25 Western Springs, Illinois
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IS.
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Orville V. Bergren, Secretary-
Illinois Manufacturers Association
3 Chicago, Illinois
4 Irving Berstein, Chemical Engineer
Federal Water Pollution Control Administration
5 Chicago, Illinois
6 Jerry Bers, President
Pump Equipment & Service Company
7 Chicago, Illinois
8 John E. Bessert, National Sales Manager
Zimpro Division of Sterling Drug, Inc.
9 Glen Ellyn, Illinois
10 Kenneth Bigland
Physical Science Administrator
11 Federal Water Pollution Control Administration
Washington, D. C.
12
Leon G. Billings, Professional Staff
13 U. S. Senate Subcommittee
on Air & Water Pollution
14 Washington, D. C.
15 L. F. Birkel, Supervisor
Water Management
16 Republic Steel Corporation
Cleveland, Ohio
17
Mrs. Robert E. Bitner, District Secretary
18 Congressman Robert McClory, 12th District
Barrington, Illinois
19
Robert A. Black, Chief Engineer
20 Chicago Park District
Chicago, Illinois
21
Carl Blomgren, Sanitary Engineer
22 Illinois Sanitary Water Board
Chicago, Illinois
23
Susan Blumenthal
24 5511 South University
Chicago, Illinois
25
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2 0
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Richard M. Boardman, Chief
Water Quality Section
3 Pennsylvania Department of Health
Harrisburg, Pennslyvania
Julius R. Bocik, Jr.
Assistant Plant Engineer
Johnson Motors Division O.M.C.
Waukegan, Illinois
7 Steve Boen, Geologist
University of Wisconsin
8 Madison, Wisconsin
9 Ray Botch, Asst. to City Manager
City of Highland Park
10 Highland Park, Illinois
11 Prank W. Bouma
Kent County Drain Commission
Kent County & Grand River Watershed
Grand Rapids, Michigan
13
Prank P. Bourgin, Regional Director
Region IV, Office of Emergency Planning
Battle Creek, Michigan
15
Dr. William W. Bourke, Director
1<» Veterans Hospital
Downey, Illinois
17
Robert J. Bowden, Chief
Calumet Area Surveillance Unit
Federal Water Pollution Control Administration
Chicago, Illinois
20 Fred R. Boyett
Regional Commissioner of Customs
21 U. S. Customs
Chicago, Illinois
22
Austin Boyle
23 E. C. Manufacturers Association
East Chicago. Indiana
24
25
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21
1 OTHERS IN ATTENDANCE (CONTINUED):
2 L. L. Bradish, Executive Secretary
Cook County Clean Streams
3 River Forest, Illinois
4 A. D. Brandt, Manager
Environmental Quality Control
5 Bethlehem Steel Corporation
Bethlehem, Pennsylvania
6
John Brasch, Asst. Director
7 Bureau of Pish Management
Wisconsin Department of Natural Resources
8 Madison, Wisconsin
9 Walter G. Bray
Saugatuck Township
10 Saugatuck, Michigan
11 Robert W.J. Brett
Asst. Professor of Environmental Engineering
12 Illinois Institute of Technology
Chicago, Illinois
13
Mrs. Andrew J. Brisleu
14 League of Women Voters
Chicago, Illinois
15
John R. Brough, Director
16 Air & Water Control
Inland Steel Company
17 East Chicago, Indiana
18 William C. Brewer, Vice Chairman
South Shore Property Owners' Association
19 Chicago, Illinois
20 Arthur P. Brown, Asst. Superintendent
National Steel Division
21 Portage, Indiana
22 Mrs. James B. Brown, President
League of Women Voters
23 Winnetka-Northfield-Kenilworth
Winnetka, Illinois
24
25
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22
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Joseph Bruckner
Loyola University
3 Niles, Illinois
4 J. F. Bruckner, Asst. General Manager
Mackinac Transport Company
5 | Chicago, Illinois
6 William A. Brungs, Chief
Fish Toxicology Laboratory
7 Federal Water Pollution Control Administration
Cincinnati, Ohio
8
H. A. Buchanan, Chief
9 Reports Section
Federal Water Pollution Control Administration
10 Chicago Program Office
Downers Grove, Illinois
11
Robert M. Buckley, P.E., Sanitary Engineer
12 Detroit Program Office
Federal Water Pollution Control Administration
13 Grosse lie, Michigan
14 Ronald T. Buddecke, Civil Engineer
Corps of Engineers, N.C.D.
15 Chicago, Illinois
16 Charles G. Bueltman, Vice President
Technical Director
17 Soap & Detergent Association
New York, New York
18
Edwin T. Bull, President
19 Bull Towing & Dredging
Joliet, Illinois
20
Donald T. Bunker, Principal
21 Conservation Education Committee
Green Bay Board of Education
22 Green Bay, Wisconsin
23 Robert S. Burd, Director
Water Quality Standards Staff
24 Federal Water Pollution Control Administration
Washington, D. C.
25
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. 23
OTHERS IN ATTENDANCE (CONTINUED):
2 Wallace Burkee, Mayor
(71-hv nf Tformshfl
3
N a. j. j. a, w c juuj..n.cc, i'*»j
City of Kenosha
Kenosha, Wisconsin
4 Mrs. Robert M. Burnett
League of Women Voters
5 Chicago, Illinois
6 Sol Burstein, Vice President
Wisconsin Electric Power Company
1 Milwaukee, Wisconsin
8 H. W. Byers
Superintendent of Public Schools
9 Lake County
Waukegan, Illinois
10
Marshall F. Bynum,Commander
11 Chicago Park District
Chicago, Illinois
12
Anne F. Byrne, Microbiologist
13 Federal Water Pollution Control Administration
Chicago Program Office
14 Chicago, Illinois
15 William D. Calhoun
Governmental Affairs Representative
16 Youngs town Sheet & Tube Company
East Chicago, Indiana
17
Robert L. Camenisch, Attorney-In-Charge
18 Federal Trade Commission
Chicago, Illinois
19
Paul E. Cannon, Area Manager
20 Federal Aviation Administration
Des Plaines, Illinois
21
B. W. Capek
22 Asst. to the Executive Vice President
Union Tank Car Company
23 Chicago, Illinois
24 Gordon Carlson, Product Manager
Carlson Division Koehler Dayton
25 Dayton, Ohio
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24
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Andre L. Caron, Regional Engineer
National Council for Stream Ins.
3 Western Michigan University
Kalamazoo, Michigan
4
J. Roland Carr, Regional Editor
5 Engineering News Record
Chicago, Illinois
6
Howard A. Carter, Chairman
7 Exhibit Committee
Western Society of Engineers
8 Winnetka, Illinois
9 Mrs. Ruth Carter
Asst. Project Control Clerk
10 Federal Water Pollution Control Administration
Chicago, Illinois
11
Todd A. Gayer, Sanitary Engineer
12 Federal Water Pollution Control Administration
Chicago, Illinois
13
Eugene Chaiken, Sanitary Engineer
14 Federal Water Pollution Control Administration
Chicago, Illinois
15
David C. Chandler, Professor
W Zoology, University of Michigan
Ann Arbor, Michigan
17
Anton M. Chanlynn, President
18 Wisconsin Sportsman's Associates, Inc.
Racine, Wisconsin
19
Kathrinn Chatman, Statistical Clerk
20 Federal Water Pollution Control Administration
Chicago Program Office
21 Chicago, Illinois
22 John D. Cherry, Asst. Regional Director
Bureau of Outdoor Recreation
23 Ann Arbor, Michigan
24 ! Mrs. J. Clark Chisek
League of Women Voters
25 Chicago, Illinois
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Ralph G. Christensen
Research & Development Programs
3 Federal Water Pollution Control Administration
Chicago, Illinois
4
T. Christie, Engineer
5 Precision Scientific
Chicago, Illinois
6
James P. Clancey, Attorney
7 Michigan Iron Mining Association
Clancey & Hansen
8 Ishpeming, Michigan
9 Fred A. Clarenbach, Professor
Regional Planning
10 University of Wisconsin
Madison, Wisconsin
11
Edward C. Cleave
12 2638 Hillside Lane
Evanston, Illinois
13
A. B. Clem
14 Public Relations
Abbott Laboratories
15 North Chicago, Illinois
16 Ruth Collins
UAF, AFL, CIO
17 Chicago, Illinois
18 Thomas Conley, City Engineer
City of Hammond
19 Hammond, Indiana
20 T. V. Conner, Reporter
WFLD TV
21 Chicago, Illinois
22 Mrs. Richard L. Cook, Water Resources Chairman
Park Ridge League of Women Voters
23 Park Ridge, Illinois
24 William P. Cooke, Senior Engineer
Consumers Power Company
25 Jackson, Michigan
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26
1 OTHERS IN ATTENDANCE (CONTINUED):
2 J. B. Corey, Deputy Commissioner
Public Works, City of Chicago
3 Chicago, Illinois
4 Jack W. Cormack, Principal Asst. Engineer
Greeley and Hansen
5 Chicago, Illinois
6 Robert J. Courchaine, Regional Engineer
Michigan Water Resources Commission
7 Lansing, Michigan
8 F. L. Coventry, Superintendent
Gary Sanitary District
9 Gary, Indiana
10 Gunther P. Craun, Sanitary Engineer
U. S. Public Health Service
11 Chicago, Illinois
12 Irene M. Cunningham
League of Women Voters
13 of Western Springs
Western Springs, Illinois
14
Quincy Dadisman, Reporter
15 Milwaukee Sentinel
Mequon, Wisconsin
16
Eleanora Dahlmann, Water Chairman
17 League of Women Voters
of Lake Bluff
18 Lake Bluff, Illinois
19 Richard G. Dalbke
Kaiser Engineers
20 Chicago, Illinois
21 Prank E. Dalton, Chief Engineer
Metropolitan Sanitary District
22 of Greater Chicago
Chicago, Illinois
23
Karen Dardick
24 Northwestern University
Evanston, Illinois
25
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21
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Richard D. Davis, Engineer
Dow Chemical
3 Ludington, Michigan
4 j. Peter DeBraal, Attorney
University of Wisconsin
5 U. S. Department of Agriculture
University of Wisconsin Law School
6 Madison, Wisconsin
7 Paul E. Deqarse, Biologist
Wisconsin Department of Natural Resources
8 Madison, Wisconsin
9 William G. Dinchak, Sanitary Engineer
Illinois Sanitary Water Board
10 Chicago, Illinois
ll James Dennis, Engineering Draftsman
Federal Water Pollution Control Administration
12 Chicago Program Office
Chicago, Illinois
13
Robert W. Depke
14 Supervision, Lake County
Gurnee, Illinois
15
David R. Despres, Director
16 Dent County D.P.W.
Grand Rapids, Michigan
17
Eugene H. Dibble, Trustee
18 Metropolitan Sanitary
District of Greater Chicago
19 Chicago, Illinois
20 G. K. Dickerman
Technical Asst. to President
21 Consolidated Papers, Inc.
Wisconsin Rapids, Wisconsin
22
Irwin Dickstein, Chief
23 Pollution Surveillance
Ohio Basin Region
24 Federal Water Pollution Control Administration
Cincinnati, Ohio
25
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28
1 OTHERS IN ATTENDANCE (CONTINUED):
2 William G. Dinchak,Sanitary Engineer
Illinois Sanitary Water Board
3 Chicago, Illinois
4 Mrs. Jerome Dintenfass
League of Women Voters
5 Hoffman Estates, Illinois
6 Thomas D. Dire
Laborers International Union of North America
7 Chicago, Illinois
8 Ellwodd W. Dix, Asst. for Special Projects
Defense Contract Audit Agency
9 Chicago, Illinois
10 Royce H. Dodge, Chief
Facilities Management Branch
11 Chicago, Illinois
12 James P. Dooley, Resource Planner
Illinois Department of Business
13 and Economic Development
Springfield, Illinois
14
Mrs. J. R. Doty
15 DuPage League of Women Voters
Glen Ellyn, Illinois
16
Michael D. Drall, Test Engineer
17 Wisconsin Electric Power Company
Milwaukee, Wisconsin
18
D. J. Dughie, General Manager
19 Wisconsin Mills, Scott Paper Company
Marinette, Wisconsin
20
Jacob D. Dumelle, Asst. Chief Engineer
21 Metropolitan Sanitary District
of Greater Chicago
22 Chicago, Illinois
23 K. A. Dunbar, Manager
Atomic Energy
24 Argonne, Illinois
25
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29
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Herbert J. Dunsmore
U. S. Steel
3 Pittsburgh, Pennslyvania
4 I. C. Dyer
Federal Water Pollution Control Administration
5 Chicago Program Office
Chicago, Illinois
6
Leroy V. Dzierzanowski, Sanitary Engineer
7 Cook: County Health Department
Chicago, Illinois
8
Mary Lou Eaglesham
9 Federal Water Pollution Control Administration
Chicago, Illinois
10
Edward Edgerley, Jr., Vice President
11 Ryckraan, Edgerley, Burbank & Associates
St.Louis, Missouri
12
Allen T. Edmunds
13 Associate Regional Director
National Park Service
14 East Lansing, Michigan
15 Charles V.R. Edward, Asst. President
Commerce Clearing House, Inc.
16 Chicago, Illinois
17 Mrs, John R. Egan
League of Women Voters of Chicago
18 Chicago, Illinois
19 Albert A. Eisele, Washington Correspondent
Ridder Newspapers
20 Washington, D. C.
21 Roland Eisenbeis
Superintendent of Conservation
22 rorest Preserve District, Cook County
i.'ver Forest, Illinois
23
Abe Eiserroan, Trustee
24 Metropolitan Sanitary District
of Greater Chicago
25 Chicago, Illinois
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30
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. Giles A. Eldred
Water Pollution Chairman
3 Rock Island League of Women Voters
Rock Island, Illinois
4
Mrs. Paul Elliott, Secretary
5 Marquette Chapter, Izaak Walton League
Gary, Indiana
6
Marshall C. Elmore, Chairman
7 Water Pollution Commission
Lake County Fish & Game Protective Assn.
8 Whiting, Indiana
9 William Embry, Chief Sanitarian
Evanston-North Shore Health Department
10 Evanston, Illinois
11 W. G. Emrich, Highway Engineer
Federal Highway Administration
12 Homewood, Illinois
13 Judy Epstein
Federal Water Pollution Control Administration
14 Chicago, Illinois
15 P. J. Erickson
Michigan Canners & Freezers Assn.
16 Michigan Fruit Canners, Inc.
Benton Harbor, Michigan
17
Lawrence A. Ernest, Laboratory Director
18 Milwaukee Sewerage Commission
Milwaukee, Wisconsin
19
Gary A. Evans, Resource Specialist
20 Bureau of Outdoor Recreation
Ann Arbor, Michigan
21
Frank J, Pagan, Administrative Assistant
22 UAW Conservation Department
Detroit, Michigan
23
P. William Felden, Jr., Manager
24 Safety & Security
Clark Equipment Company
25 Buchanan, Michigan
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31
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
OTHERS IN ATTENDANCE (CONTINUED):
Malcolm Fenton
Corporation Director Facilities
Martin Marietta Corporation
New York, New York
David Ferguson, Asst. Vice President
United States Steel
Chicago, Illinois
Kenneth Ficek, District Manager
Carus Chemical Company
LaSalle, Illinois
Robert Fields, Research Designer
Precision Scientific Company
Chicago, Illinois
Roger W. Findley
Associate Professor of Law
University of Illinois
Champaign, Illinois
Bob Finley, Chief
National Marketing Office
U.S. Department of the Interior
Chicago, Illinois
Terese G. Flschbach, Secretary
Federal Water Pollution Control Adminis
Chicago Program Office
Chicago, Illinois
Mrs. Kurt F. Fischer
231 North Prospect Avenue
Park Ridge, Illinois
tration
Francis D. Fisher, Regional Administrator
Department of Housing & Urban Development
Chicago, Illinois
Herbert J. Fisher, Chief
Biology Unit
Federal Water Pollution Control Adminis
Chicago Program Office
Chicago, Illinois
tratlon
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32
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Bert C. Pisix
The Arnold Engineering Company
3 Marengo, Illinois
4 Elizabeth Fleming
League of Women Voters, Unit 1*2
5 Chicago, Illinois
6 Edward G. Fochtman, Manager
IIT Research Institute
7 Chicago, Illinois
8 George J. Foster, Reporter
CBS News
9 Chicago, Illinois
10 S. A. Foust, Project Engineer
Union Carbide
11 Whiting, Indiana
12 James A. Fcwler, Engineer
Sinclair Refining Company
13 East Chicago, Indiana
14 Edward H. Frank
Press Relations Representative
15 Bethlehem Steel Corporation
Chicago, Illinois
16
Herbert D. Fritz
17 Municipal Management Consultant
P & W Engineers, Inc.
18 Chicago, Illinois
19 Gilbert Frye
Physical Science Technician
20 Federal Water Pollution Control Administration
Chicago Program Office
21 Chicago, Illinois
22 Stan Fryzel, Co-chairman
Cook County Clean Streams
23 Dolton, Illinois
24
25
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33
1 OTHERS IN ATTENDANCE (CONTINUED):
2 E. Montford Fucik, President
Harza Engineering Company
3 Chicago, Illinois
4 Mrs. P. D. Puller
Wolf Road
5 Western Springs, Illinois
6 F. D. Fuller, Chief Chemist
Federal Water Pollution Control Administration
7 Chicago Program Office
Chicago, Illinois
8
Tom S. Gable
National Sanitation Foundation
Ann Arbor, Michigan
10
Clifford W. Galen, Plant Engineer
Eaton Yale & Towne
Battle Creek, Michigan
12
M. B. Garnet
13 Federal Water Pollution Control Administration
hicago, Illinois
14
C. W. Gansz
American Petroleum Institute
Chicago, Illinois
16
Donald M. Gardiner, Director
Safety & Technical Service
USAEC-CH
18 Argonne, Illinois
Dorothy Garmus
League of Women Voters
20 Munster, Indiana
21 Paul Giblin
5132 West Harrison
22 Chicago, Illinois
23 James F. Gibson
4078 Highgate Road
24 Muskegon, Michigan
25
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3*
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Robert V. Glass
Chicago's American
3 Chicago, Illinois
4 David B. Goldberg
Chief Engineer of Sewers
5 Bureau of Water & Sewers
Chicago, Illinois
6
Nathan 3. Golub
7 National Park Service, Northeast Region
U. S. Department of the Interior
g Philadelphia, Pennsylvania
9 Richard Gore
Northwestern University
10 Evanston, Illinois
H W. J. Gossom, Industry Manager
Waste Control, H.P.D., Chicago Bridge & Iron
12 Oak Brook, Illinois
13 Harold B. Gothaas, Dean
Technological Institute
14 Northwestern University
Great Lakes Commission
15 Evanston, Illinois
16 Catholine Graham
League of Women Voters
17 Dolton, Illinois
18 Ross A. Granna, Trustee
North Shore Sanitary District
19 Waukegan, Illinois
20 LeRoy E. Graiziger
1005 Ridge
21 Homewood, Illinois
22 Edmund J. Grant
Asst. Commissioner for Administration
23 Federal Water Pollution Control Administration
Washington, D. C.
24
25
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1
OTHERS IN ATTENDANCE (CONTINUED):
2 Herbert Greenspahn, Asst. Vice President
Material Service
3 Chicago, Illinois
4 Mrs. Edna C. Greuel, League President
League of Women Voters
5 Benton Harbor-St. Joseph, Michigan
St. Joseph, Michigan
6
James D. Griffith, Chairman
7 Committee on Lake Michigan Pollution
Glenview, Illinois
8.
Mrs. Ralph Griff ity
9 League of Women Voters, Unit 42
Chicago, Illinois
10
John J. Grimes, Jr.
11 U. S. Steel Corporation
Waukegan, Illinois
12
Chester W. Grobschmidt
13 Mayor of South Milwaukee
South Milwaukee, Wisconsin
14
Mrs. Arthur Grossmann
15 League of Women Voters
Highland Park, Illinois
16
Julius H. Grubman, Attorney
17 Metropolitan Sanitary District
of Greater Chicago
18 Chicago, Illinois
19 Roger Grunow, Sanitary Engineer
Lake County Health Department
20 Waukegan, Illinois
21 James F. Grutsch
Coordinator of Waste Disposal
90
American Oil Company
Chicago, Illinois
MO
Ben J. Gryctro, Executive Secretary
Federal Water Pol
Washington, D. C.
24 Federal Water Pollution Control Administration
25
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36
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Audrey A. Grzywinski
1623 East 55th Street
3 Chicago, Illinois
4 C. Fred Gurnham
Illinois Institute of Technology
5 Chicago, Illinois
6 Roy Gurnham
10159 South Leauitt
7 Chicago, Illinois
8 James E. Gwartney
Supervisory Survey Statistician
9 U. S. Census Bureau
Chicago, Illinois
10
Harry P. Hagedorn
11 15031 Highland Avenue
Orland Park, Illinois
12
Mrs. Harry P. Hagedorn
13 League of Women Voters
Orland Park, Illinois
14
Otto S. Hallden, Chief
15 General Sanitation
Illinois Department of Public Health
16 Springfield, Illinois
17 K. W. Hamming
Sargent & Lunox
18 Chicago, Illinois
19 Paul D. Haney, Consulting Engineer
Black & Veatch
20 Kansas City, Missouri
21 Jack Hank
Director of Public Relations
22 Chicago Park District
Chicago, Illinois
23
George J. Hanks, Jr., Plant Manager
24 Union Carbide Corporation
Whiting, Indiana
25
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37
1 OTHERS IN ATTENDANCE (CONTINUED):
2 William S. Hanley, Attorney
East Ontario
3 Chicago, Illinois
Rebecca W. Hanmer, Program Analyst
Water Quality Standards Staff
5 Federal Water Pollution Control Administration
Washington, D. c.
6
Mrs. Howard Hansen
League of Women Voters
Glen Ellyn, Illinois
Alfred F. Hanson, Plant Engineering
Johnson Motors
Waukegan, Illinois
10
Arnold M. Hanson, Research Assistant
University of Chicago
Chicago, Illinois
12
Harry D. Harman
13 Vice President & Asst. General Manager
Gary-Hobart Water Corporation
Gary, Indiana
15 Gary D. Harmon, Sanitary Engineer
Illinois Sanitary Water Board
16 Chicago, Illinois
I7 John D. Harper, President
The Marsan Corporation
18 Chicago, Illinois
19 Art Harris
Indianapolis News
Indianapolis, Indiana
21 Peggy Harris, Biologist
Department of the Interior
22 Federal Water Pollution Control Administration
Chicago Program Office
23 Chicago, Illinois
24
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Robert A. Harris, City Engineer
City of South Milwaukee
3 South Milwaukee, Wisconsin
4 Lloyd L. Harrold, Research Supervisor
U. D. Department of Agriculture
5 Coshocton, Ohio
6 J. A. Hart, Special Project Coordinator
Mobil Oil Corporation
7 East Chicago, Indiana
8 Robert P. Hartley, Chief
Surveillance
9 Federal Water Pollution Control Administration
Cleveland Program Office
10 Cleveland, Ohio
11 Chester Harvey, District Engineer
Michigan Water Resources Commission
12 Lansing, Michigan
13 Dan Haryman, Supervisor of Services
National Steel Corporation
14 Portage, Indiana
15 Joel Hauemann, Reporter
Chicago Sun-Times
16 Chicago, Illinois
17 Thomas E. Haviland, Sr., General Manager
WCFL TV
18 Chicago, Illinois
19 Dorothy A. Hawkins
Federal Water Pollution Control Administration
20 Chicago Program Office
Chicago, Illinois
21
Ken C. Hayden, Application Engineer
22 Zurn Industries, Inc.
Chicago, Illinois
23
Richard J. Hayes, Asst. Director
24 American Bar Association
Chicago, Illinois
25
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39
1 OTHERS IN ATTENDANCE (CONTINUED):
2 F. R. Hazard
Great Lakes Dredge & Dock
3 Chicago, Illinois
4 James W. Hedges
Civil Engineer IV
5 Chicago Department of Water & Sewers
Chicago, Illinois
6
Mrs. Jo Heine
7 Land & Water Resource State Chairman
General Federal Women's Clubs
8 Milwaukee, Wisconsin
9 Kenneth E. Heineman, Mayor
City of Muskegon Heights
10 Muskegon Heights, Michigan
11 Mrs. George Heitler
League of Women Voters of Chicago
12 Chicago, Illinois
13 Thorvald E. Hendersen, Sanitary Engineer
Federal Water Pollution Control Administration
14 Chicago, Illinois
15 Mrs. C. A. Hendrickson, President
Illinois Federation of Women's Clubs
16 Chicago, Illinois
17 Betty Herlihy
League of Women Voters
18 Chicago, Illinois
19 Chase N. Hess, President
Geneva Lake Water Safety Committee
20 Lake Geneva,Wisconsin
21 Darryl L. Hessel
Department of Conservation
22 University of Michigan
Ann Arbor, Michigan
23
George Hinman, Chairman
24 Physics Dept., Gulf General Atomic
LaJolla, California
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. T. J, Hinze
League of Women Voters of Rock Island
3 Rock Island, Illinois
4 Robert A. Hirshfield, Staff Engineer
Commonwealth Edison
5 Chicago, Illinois
6 Harlan D. Hirt, Water Resources Planner
Federal Water Pollution Control Administration
7 Chicago, Illinois
g Mrs. Carlyle Hodgkin
Water Resources Committee Member
9 League of Women Voters of
LaGrange and LaGrange Park
10 LaGrange, Illinois
11 Mary A. Holly
Federal Water Pollution Control Administration
12 Midlothian, Illinois
13 Paul N. Horeyseck, Associate Director
Continental Can Company
14 Chicago, Illinois
15 John L. Hornbach, City Engineer
City of Grand Rapids
16 Grand Rapids, Michigan
17 Mrs. William D. Horne
League of Women Voters
18 Harrington, Illinois
19 D. D. Horton, General Attorney
U. S. Steel Corporation
20 Chicago, Illinois
21 P. V. Houriet, Jr.
Manager of Merchandising
22 Allis-Chalmers
Milwaukee, Wisconsin
23
Richard S. Howe
24 Department of Water Resource Management
University of Wisconsin
25 Madison, Wisconsin
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. John W. Huck
League of Women Voters of Chicago
3 Chicago, Illinois
4 C. S. Huestis, Consultant
Continental Can Company
5 New York, New York
6 John Hughes, Asst. Director of Research
American Colloid
7 Skokie, Illinois
g D. A. Hunt, District Manager
American Bowser Corporation
9 Aurora, Illinois
10 Mrs. William J. Hunt
Water Conservation Committee
11 Barrington League of Women Voters
Barrington, Illinois
12
Madeline Huston, Chemist
13 Federal Water Pollution Control Administration
Chicago Program Office
14 Chicago, Illinois
15 Mrs. Thomas Irvine
League of Women Voters
16 Buchanan, Michigan
17 George P. Jackson
Water Quality Control Specialist
18 Cities Service Oil Company
Tulsa, Oklahoma
19
Deowin Jacobs
20 Mayer & O'Brien
Chicago, Illinois
21
I. R. Jacobson
22 Great Lakes Survey Corporation
Sturgeon Bay, Wisconsin
23
Max Jakofsky, Hydraulic Engineer
24 U. S. Army Corps of Engineers
Chicago, Illinois
25
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1
OTHERS IN ATTENDANCE (CONTINUED):
2 N. Lee James, Supervisor
Consumers Power Company
3 Jackson, Michigan
4 Mrs. Joseph Jannelle, National Director
Marquette Chapter, President
5 Izaak Walton League of America
Chesterton, Indiana
6
Florence Janulis, Director of Board
7 League of Women Voters of Danville
Danville, Illinois
8
John P. Janus, Asst. Director
9 USDA-C & MS - Consumer Pood Programs
Chicago, Illinois
10
William A. Jenkins, Captain
11 U. S. Coast Guard
Washington, D. C.
12
Sister Mary John SSMD, Chief Engineer
13 School Sister of Notre Dame
Mequon, Wis.consin
14
Clarence B. Johnson, City Commissioner
15 City of Wyoming
Wyoming, Michigan
16
Gerald P. Johnson, Superintendent
17 Sanitary District of Hammond, Inc.
Hammond, Indiana
18
James Johnson
19 WLS -ABC
Chicago, Illinois
20
Mrs. J. L. Johnson, Water Resources Chairman
21 League of Women Voters
Barrington, Illinois
22
R. E. Johnson, Asst. Director
23 Bureau of Sport Fisheries & Wildlife
Washington, D. C.
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Ron Johnson, Staff Writer
The Times
3 Hammond, Indiana
4 Weltmrne D. Johnson
Supervisor Organic Chemistry Laboratory
5 Federal Water Pollution Control Administration
Chicago Program Office
6 Chicago, Illinois
7 R. D. Johnsos, Deputy Commissioner
for Water, Department of Water & Sewers
8 Chicago, Illinois
9 Guy E. Jones
IBA
10 Chicago, Illinois
11 R. W. Jones, Marketing Specialist
American Dairy Review
12 Chicago, Illinois
13 R. Jordan, District Manager
Calgon Corporation
14 Hinsdale, Illinois
15 Peter V. Judd, Regional Manager
NUS Corporation
16 Chicago, Illinois
17 Malcolm P. Kallas
Eastern Operations Office
18 Comprehensive Planning
Federal Water Pollution Control Administration
19 Washington, D. C.
20 Clive D. Kamins
Asst. to Congressman Frank Annunzio
21 Chicago, Illinois
22 Douglas Lee Kane
University of Wisconsin
23 Madison, Wisconsin
24
25 |
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Carolyn J. Karthan, Personnel Assistant
Federal Water Pollution Control Administration
3 Chicago, Illinois
4 James A. Kauanagh, Chief Chemist
Aqua Chemical,Inc.
5 Waukesha, Wisconsin
6 1 Robert Kaufmann
University of Wisconsin
7 Madison, Wisconsin
8 David Kee, Economist
Federal Water Pollution Control Administration
9 Chicago Program Office
Chicago, Illinois
10
Harriet Kennedy, Laboratory Director
11 Evsnston-North Shore Health Department
Evanston, Illinois
12
Stan Kennedy, City Manager
13 City of Highland Park
Highland Park, Illinois
14
James E. Kerrigan, Asst. Director
15 Water Resources Center
University of Wisconsin
16 Madison, Wisconsin
17 William Kessler, Senior Engineer
Consumers Power Company
18 Jackson, Michigan
19 Jerrold Keyworth, Chairman
Michigan Grand River Watershed Council
20 Lansing, Michigan
21 Richard Kienitz
Milwaukee Journal
22 Madison, Wisconsin
23 Ernest T. King, Jr., Analytical Chemist |
Federal Water Pollution Control Administration)
24 Chicago Program Office
Chicago, Illinois
25
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45.
OTHERS IN ATTENDANCE (CONTINUED):
2 K. B. King, Assoc. District Chief
U. S. Geological Survey - WRD
3 Madison, Wisconsin
4 R. Kirkconnell, Senior Engineer
IITRI
6 Chicago, Illinois
6 P. W. Kittrell, Senior Consultant
Federal Water Pollution Control Administration
7 Cincinnati, Ohio
8 Mrs. C. W. Klassen
2022 Park Drive
9 Springfield, Illinois
10 Mrs. A. Klemek
6130 West 128th Street
11 Palos Heights, Illinois
12 Kark J. Klepitsch, Jr., Staff Engineer
Federal Water Pollution Control Administration
13 Chicago, Illinois
14 Dr. A. T. Knecht
Sinclair Researc
15 Harvey, Illinois
Sinclair Research-^ Inc.
16 John Koenig, Jr.
Public Information
17 National Coal Policy Conf., Inc.
Washington, D, C.
18
Laurel Koertgen, Water Resources Chairman
Skokie League of Women Voters
Park Ridge, Illinois
20
Henry J. Kolbeck, Civil Engineer
21 Wisconsin Electric Power Company
Milwaukee, Wisconsin
22
Mrs. Edward Kolhauser
23 6112 West 128th Street
Palos Heights, Illinois
24
25
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1
OTHERS IN ATTENDANCE ( CONTINUED)?
2 K. L. Kollar, Director
Water Industries Division
3 BDSA, U.S. Department of Commerce
Silver Spring, Maryland
4
Jean Komaiko, Associate Editor
5 Chicago Magazine
Chicago, Illinois
6
Paul C. Korman
7 United Auto Workers
Chicago, Illinois
8
Edmund K. Kosciuch, Consultant Engineer
9 Chicago, Illinois
10 Ann L. Kovell
Federal Water Pollution Control Administration
11 Chicago, Illinois
12 C. J. Kramer, Cavitette Supervisor
Yeoman Brothers Corporation
13 Melrose Park, Illinois
14 Fred G. Krikau
Environmental Control Engineer
15 Interlake Steel
Chicago, Illinois
16
A. Kristalyn
17 Federal Water Pollution Control Administration
Chicago Program Office
18 Chicago, Illinois
19 R. H. Kroetz, Lawyer
Commerce Clearing House
20 Water Control News
Chicago, Illinois
21
Peter G, Kuh, Staff Assistant
22 Federal Water Pollution Control Administration
Washington, D. C.
23
24
25
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1 OTHERS IN ATTENDANCE (CONTINUED)i
2 Mrs, Louise Kwiatt
Federal Water Pollution Control Administration
3 Chicago Program Office
Chicago, Illinois
4
Bronson C. LaFollette, Attorney General
5 Wisconsin State Capitol
Madison, Wisconsin
6
H. J. Laitner, President
7 Laicon, Inc.
LaGrange, Illinois
8
L. E. Langdon, Vice President
9 Pacific Flush Tank Company
Chicago, Illinois
10
Mrs. Albert Langelotting
11 Lake Michigan Basin Interstate
League of Women Voters Committee
12 Chesterton, Indiana
13 Nicholas J. Lardieri, Manager
Air & Water Resources
14 Scott Paper Company
Philadelphia, Pennslyvania
15
David F. C. Larkman, Industry Manager
16 Chicago Bridge & Iron
Oak Brook, Illinois
17
Charles W. Larsen, Civil Engineer
18 Corps of Engineers
Chicago, Illinois
19
T. E. Larson, Assistant Chief
20 Illinois State Water Survey
Champaign, Illinois
21
Mrs. W.J. Larson, Jr.
22 League of Women Voters of Elmhurst
Elmhurst, Illinois
23
Allen S. Lauin, Attorney
24 Metropolitan Sanitary District
of Greater Chicago
25 Chicago, Illinois
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1
OTHERS IN ATTENDANCE (CONTINUED):
2 Harley F. Lawhead, Assistant Chief
Engineering Division
3 Corps of Engineers
North Central Division Office
4 Chicago, Illinois
5 Samuel T. Lawton, Jr., Mayor
City of Highland Park
6 Highland Park, Illinois
7 Cornel A. Leahu, Gen. Superintendent
East Chicago Sanitary District
8 East Chicago, Indiana
9 Ray D. Leary, Chief Engineer &
General Manager, Milwaukee
10 Metropolitan Sewer Commission
Milwaukee, Wisconsin
11
Paul F. Leavitt, Asst. Chief Engineer
12 Gerber Products Company
Fremont, Michigan
13
Daniel LeClair, General Manager
14 3138 Memorial Avenue
Two Rivers, Wisconsin
15
Jon J. Lee, Chemist
16 East Chicago Sanitary District
East Chicago,, Indiana
17
Kenneth Lehner, Superintendent
18 Chemical Services
Wisconsin Electric Power Company
19 Milwaukee, Wisconsin
20 Benn J. Leland, Sanitary Engineer
Illinois Sanitary Water Board
21 Chicago, Illinois
22 John C. Lemmon, Editor
Water Control News
23 Commerce Clearing House, Inc.
Chicago, Illinois
24
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 A. V. Lesley, Public Relations Assistant
Inland Steel Company
3 Chicago, Illinois
4 George Lesmck, Vice President
Pairchild Instrument
5 Chicago, Illinois
6 Marc Levenstern
69 West Washington Street
7 Chicago, Illinois
8 Mrs. Ezra Levin
League of Women Voters
9 Champaign, Illinois
10 Paul Levin, Research Engineer
General American Resources Division
11 Niles, Illinois
12 George Liddle, Jr., District Engineer
Michigan Water Resources Commission
13 Cadillac, Michigan
14 Leonard F. Link, Senior Engineer
Argonne National Laboratory
15 Argonne, Illinois
16 James P. Linse, Reporter
Post-Tribune (Gary)
17 Gary, Indiana
18 Jay A. Lipe, Attorney
208 South LaSalle
19 Chicago, Illinois
20 Gene Little, Manager
Natural Resources
21 Michigan State Chamber of Commerce
Lansing, Michigan
22
Sister M. Lmeldis, SSND
23 Notre Dame of the Lake
Mequon, Wisconsin
24
25
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30
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Jerry Lottei, Councilman
Muskegon Heights
3 Muskegon Heights, Michigan
4 Charles T. Luczak
Federal Water Pollution Control Administration
5 Chicago, Illinois
6 Ralph Luken, Asst. Professor
Water Resources Committee
7 University of Michigan
Conservation Department
8 Ann Arbor, Michigan
9 Armon Lund, Village Manager
Village of Wilmette
10 Wilmette, Illinois
11 Erling H. Lunde, Arrangements Committee
Citizens of Greater Chicago
12 Chicago, Illinois
13 Thomas Lutz, Associate Editor
National Safety News
14 National Safety Council
Chicago, Illinois
15
Lois C. MeCabe, Chairman of the Board
16 Resources Research,Inc.
Palls Church, Virginia
17
James H. McCall
18 Corporate Finance Department
Goodbody & Company
19 Chicago, Illinois
20 Mrs. G. L. McCormick
State Conservation Chairman
21 Wisconsin Federation of Women's Clubs
Waukesha, Wisconsin
22
Mrs. William R. McConochie
23 , League of Women Voters
i Glen Ellyn, Illinois
24
25
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51
1 OTHERS IN ATTENDANCE (CONTINUED):
2 H. D. McCullough, City Engineer
City of Milwaukee
3 Milwaukee, Wisconsin
4 James 0. McDonald, Director
Regional Construction Grants Program
5 Federal Water Pollution Control Administration
Chicago, Illinois
6
David C. McKinney
7 Illinois Institute of Technology
Chicago, Illinois
8
Dan Mcluer
9 Corporate Communications
Dow Chemical Company
10 Midland, Michigan ,
11 Dr. James McMahon, Chairman
McHenry County Clean Streams
12 McHenry, Illinois
13 Ariel McMullen, Water Resources Chairman
North Brook League of Women Voters
14 North Brook, Illinois
15 Chester McMullen, Health Officer
City of Waukegan
16 Waukegan, Illinois
17 Mrs. W. R. McMunn, Water Chairman
Munster League of Women Voters
18 Munster, Indiana
19 H. E. McReynolds, Regional Fisheries Biologist
U. S. Forest Service
20 Milwaukee, Wisconsin
21 Mrs. D. E. Mackelmann
League of Women Voters
22 Chicago, Illinois
23 Robert G. Mackey
Attorney
24 Chicago, Illinois
25
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_ 52
1 OTHERS IN ATTENDANCE (CONTINUED):
2 C. P. MacNish, Chief
Engineering Division
3 Corps of Engineers, NCD
Chr'cago, Illinois
K. R. Majors, Industrial Specialist
6 U. S. Department of Agriculture
Northern Utilization Research Lab
6 Peoria, Illinois
7 A. Hassan Makarechian, Project Engineer
Harza Engineering Company
8 Chicago, Illinois
9 P. M. Mango
D'Arey Advertising Company
10 Chicago, Illinois
11 Edward L. Marek, Regional Sanitary Engineer
Illinois Department of Public Health
12 Aurora, Illinois
13 Thomas E. Mark, Manager
Corplan Associates
14 Chicago, Illinois
15 Gerald Marks, Trustee
Metropolitan Sanitary District
16 of Greater Chicago
Chicago, Illinois
17
James R. Marshall, Managing Editor
18 McGraw Hill's Air & Water News
New York, New York
19
P. J. Marshall, Consultant
20 Abbott Laboratories
Wilmette, Illinois
21
Joseph H. Marter, Civil Engineer
University of Wisc
Madison, Wisconsin
David W. Martin, Engineer-Manager
Green Bay Metropolit
Green Bay, Wisconsin
22 University of Wisconsin
23
24 Green Bay Metropolitan Sewer District
25
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53
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mary Martin
Regina Dominican High School
3 Winnetka, Illinois
. John Martinek, Superintendent
Sewerage System, City of South Milwaukee
_ South Milwaukee, Wisconsin
Betty J, Mathias
Federal Water Pollution Control Administration
Chicago, Illinois
John S. Matijevich, State Representative
31st District - Illinois
North Chicago, Illinois
*r
10 C. E. Maumann, Chemist
Marblehead Lime
Chicago, Illinois
12 Howard G. Mayer
Mayer and O'Brien, Inc.
,„ Chicago, Illinois
is
.. James A. Meany, Chief Sanitary Officer
Chicago Board of Health
._ Chicago, Illinois
16 James W. Meek
612 A Street N.W.
Washington, D.C.
J. Edward Meers, Superintendent-Manager
Sanitary District of Bloom TWP
Chicago Heights, Illinois
20 Nicholas J. Melas, Trustee
Metropolitan Sanitary District
of Greater Chicago
Chicago, Illinois
22
Clifford N. Melby, Auditor
23 U. S. General Accounting Office
Chicago, Illinois
24
25
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1
OTHERS IN ATTENDANCE (CONTINUED);
2 H. J. Mersereau, Plant Manager
Simplicity Pattern Company, Inc.
3 Niles, Michigan
4 R. C. Merson
City of St. Joseph
8 St. Joseph, Michigan
6 Albert J. Meserow, Chairman
Great Lakes Commission of Illinois
7 Chicago, Illinois
8 Glenn W. Metcalfe, Supervisor of Sanitation
Chicago Park District
9 Chicago, Illinois
10 C. T. Mickle, Chief of M&O
Sanitary District
11 Chicago, Illinois
12 Mrs. Michoel Michritz, Chairman
Water Resources
13 Hobart League of Women Voters
Hobart, Indiana
14
Carlos Mikkelsen, City Councilman
15 City of Whitehall
Whitehall, Michigan
16
Francis J. Miller, Director
17 Wisconsin Wildlife Federation
Racine, Wisconsin
18
Henry A. Miller, Chairman
19 Cook County Clean Streams
Riverside, Illinois
20
Herbert Miller, Environmental Specialist
21 DeLaval Separation Company
Chicago, Illinois
22
J. H. Miller, Chief Engineer
Wisconsin Steel C«
Chicago, Illinois
no
0 Wisconsin Steel Company
24
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. L. E, Miller
5630 North Sheridan
3 Chicago,Illinois
4 Richard Miller
Asst. Professor of Geography
5 Carthage College
Kenosha, Wisconsin
6
Jaines W. Milne, Vice President of Operations
7 Abbott Laboratories
North Chicago, Illinois
8
William D. Mitchell, District Chief
9 W. R. Division, U.S. Geology Survey
Champaign, Illinois
10
Steve Mitnck, Plant Engineer
11 American Steel Foundries
Chicago, Illinois
12
Gertrude B. Moore, Member
13 Insecticide & Pesticide Commission
Izaak Walton League of America
14 Wilmette, Illinois
15 R. Edwin Moore, Vice President
International Telephone & Telegraph Company
16 Morton Grove, Illinois
17 Grace Moran
Federal Water Pollution Control Administration
18 Chicago Program Office
Chicago, Illinois
19
Samuel Moreell, Jr., Construction Engineer
20 1619 Morse Avenue
Chicago, Illinois
21
C. Richard Morgan, Senior Staff Associate
22 Acorn Park
Cambridge, Massachusetts
23
Don L. Morgan, Plant Manager
24 Morton Chemical
Manistee, Michigan
25
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56
1 OTHERS IN ATTENDANCE (CONTINUED):
2 R. E. Morris, Asst. General Manager
Control Data Corporation
3 Chicago, Illinois
4 Thomas Morris
Secretary Board of Trustees
5 City of East Chicago
Department of Water Works
6 East Chicago, Indiana
7 Mrs. Don Morrison
727 Hibbard Road
8 Wilmette, Illinois
9 John R. Morrow, Asst. Attorney General
State of Illinois
10 Springfield, Illinois
11 Mrs. D. B. Morton
1425 Cherry Road
12 Springfield, Illinois
13 Ruth C. Mosser
League of Women Voters
14 Chicago, Illinois
15 Raymond Mostek, President
Illinois Audubon Society
16 Chicago, Illinois
17 Donald Mount, Director
National Water Quality Lab.
18 Federal Water Pollution Control Administration
Duluth, Minnesota
19
Marti Mueller
20 Journalism Research
Northwestern University
21 Evanston, Illinois
22 A. Thomas Munizzo
Asst. Director Special Services
23 Chicago Park District
Chicago., Illinois
24
25
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__ ___ _ sz
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Ed Munro, Commissioner
King County Advisory Committee
3 Federal Water Pollution Control Administration
Seattle, Washington
4
Neil Munro, Reporter
5 Grand Rapids Press
Grand Rapids, Michigan
6
Charles W. Murray, Jr.
7 Planning & Program Grants Officer
PWPCA - Ohio Basin Region
8 Cincinnati, Ohio
9 Richard J. Murtaugh, Resources Scientls-t
Continental Can Company
10 Chicago, Illinois
11 Arthur F. Muschler, Technical Director
Edward Hines Lumber Company
12 Chicago, Illinois
13 Mrs. Arthur L. Muschler
Water Resource Chairman
** Elmhurst League of Women Voters
Oak Brook, Illinois
15
Ed Nash, Reporter
16 Waukegan News -Sun
17 Captain John Natwig
Commander Coast Guard Group
18 Chicago, Captain of the Port
Chicago, Illinois
Mrs. H. F. Nealis
20
League of Women Voters
Des Plaines, Illinois
Charles Neermann, Sales Manager
Aqua Systems Corporation
Chicago, Illinois
Mrs. John D. Neesley
League of Women
Munster, Indiana
League of Women Voters
25
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58
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Richard S. Nelle
Water Resources Engineer
3 Illinois Department of Health
Springfield, Illinois
4
0. Fred Nelson, Manager
5 Kenosha Water Utility
Kenosha, Wisconsin
6
Richard J. Nelson, Director
7 Public Relations
Inland Steel Company
8 Chicago, Illinois
9 Tom Nelson, Administrative Assistant
Village of Winnetka
10 Winnetka, Illinois
11 William R. Nelson, Director
Resources & Development
12 Green Bay Packaging Inc.
Green Bay, Wisconsin
13
E. J. Nesselson, Director
14 Air & Water Management
Velsicol Chemical Corporation
15 Chicago, Illinois
16 J. Robert Nicholson, Regional Engineer
Zimpro Division Sterling Drug, Inc.
17 Oak Brook, Illinois
18 H. C. Niemann
Division Headquarters Assistant
19 Sinclair Refining Company
East Chicago, Indiana
20
Jeffery Niemann
21 Valparaiso University
Valparaiso, Indiana
22
Horace 0. Nixon, Chief
23 Branch Water Management
Forest Service
24 Milwaukee, Wisconsin
25
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59
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Arnold Noble, Documentary Producer
Wood-TV Time-Life Broadcast
3 Grand Rapids, Michigan
4 Gregory Norwell, Attorney
U. S. Army Corps of Engineers
5 Chicago, Illinois
6 Ronald J. Nugent
Manager of Engineering
7 Ott Chemical Company
Muskegon, Michigan
8
Carl TTumelin, Plant Engineer
9 Morton Chemical Company
Manisoee, Michigan
10
Mrs. Robert E. O'Brien, Water Chairman
11 League of Women Voters of Hinsdale
Hinsdale, Illinois
12
Herman A. Ogren, Assoc. Project Biologist
13 Carthage College
Kenosha, Wisconsin
14
Frederic C. Olds, Associate Editor
15 Power Engineering Magazine
Barrington, Illinois
16
L. B. O'Leary, Director
17 Detroit Program Office
Federal Water Pollution Control Administration
18 Grosse lie, Michigan
19 Harold F. Olen, Vice President
Marsan Corporation
20 Chicago, Illinois
21 J. Clen, Secretary
Marsan Corporation
22 Chicago, Illinois
23 Don Olesen
Milwaukee Journal
24 Milwaukee, Wisconsin
25
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60
1 OTHERS IN ATTENDANCE (CONTINUED):
2 F. P. Ollivierr, Assistant Chairman
FEB
3 Chicago, Illinois
4 Howard E. Olson, Chief
Economic Br. & Planning Division
5 U. S. Army Corps of Engineers
Chicago, Illinois
6
Theodore F. Olson, Regional Director
7 Bureau cf the Census
Chicago, Illinois
8
Richard A. Ott, Administrative Assistant
9 Illinois State Medical Society
Chicago, Illinois
10
Mrs. C. R. Ownbey
11 ] 33 North Spring
LaGrange, Illinois
12
Lucille R. Ozanne
13 Secretary to Regional Director
Federal Water Pollution Control Administration
14 Chicago, Illinois
15 Normand A. Paasch, Director of Information
Cook County Clean Streams Commission
16 Hornewood, Illinois
17 William B. Pacheco, Staff Engineer
Federal Water Pollution Control Administration
18 Chicago, Illinois
19 Ray Pagel, Press
Press-Gazette
20 Green Bay, Wisconsin
21 Ted Pankcwski, Asst. Director
Construction & Resource Department
22 United Auto Workers
Detroit, Michigan
23
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22
23
24
25
OTHERS IN ATTENDANCE (CONTINUED):
John D. Parkhurst
President's Water Pollution
Control Advisory Board
Los Angeles, California
Robert W. Patterson
Federal Water Pollution Control
Advisory Board
Bar Harbor, Virginia
Harry M. Pawlowski
Administrative Engineer
of Water & Sewers
Chicago, Illinois
C. Pemberton, Jr., Sanitary Engineer
Federal Water Pollution Control Administration
Chicago, Illinois
Virginia Pemberton
1401 Thornwood Drive
Downers Grove, Illinois
Gunnar A. Peterson, Director
Open Lands Project
Chicago, Illinois
Ralph Petsie, Engineer
Eagle Ottowa Leather
Grand Haven, Michigan
Donald F. Phillips, Staff
American Medical Associati
Chicago, Illinois
John K. Pingel, Sr. Health
U. S. Atomic Energy Commls
Argonne, Illinois
Eugene Pinks taff, Sanitary
Associate
on
Physicist
si on
Engineer
Federal Water Pollution Control Administration
Chicago, Illinois
Mrs. Robert Piper, Water Chairman
League of Women Voters of Winnetka
Winnetka, Illinois
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62
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Gary Pitchford
Northwestern University
3 Chicago, Illinois
4 Henry L. Pitts
208 South LaSalle Street, Room 1766
5 Chicago, Illinois
6 Mrs. C. E. Pleak, President
Hobart Garden Club
7 Hobart, Indiana
8 Herbert L. Plowman, Jr., Chief Chemist
Gary-Hobart Water Corporation
9 Gary, Indiana
10 James W. Polk
Assistant Regional Commissioner
11 U. 3. Customs
Chicago, Illinois
12
Virginia Pomerance
13 Elmhurst League of Women Voters
Elmhurst, Illinois
14
Lawrence K. Pomeroy, Reporter
15 CBS News
Chicago, Illinois
16
William P. Porcelli, Asst. Counsel
17 Interlake Steel Corporation
Chicago, Illinois
18
Mrs. H. W. Poston
19 5630 North Sheridan
Chicago, Illinois
20
R. E. Poulsen, Superintendent
21 Water Plant, Highland Park
Highland Park, Illinois
22
John M. Rademacher, Director
23 Division of Technical Services
Federal Water Pollution Control Administration
24 Washington, D. C.
25
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63,
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Verdun Randolph, Asst. Chief Engineer
Illinois Department of Public Health
3 Springfield, Illinois
4 G. L. Rao, Research Scientist
IIT Research Institute
5 Chicago, Illinois
6 Arnold J. Rauen, Chairman
Chicago Federal Executive Board
7 Chicago, Illinois
8 Mrs. Lawrence Reed
League of Women Voters
9 Chicago, Illinois
10 Philip A. Reed
Filtration Engineer V
11 Chicago Water Purification Division
Chicago, Illinois
12
Alyce Renaud, Chairman
13 League of Women Voters
Palos Park, Illinois
14
Mrs. George J. Reuss, Water Chairman
15 League of Women Voters
Wheaton, Illinois
16
S. E. Reynolds
17 Water Pollution Advisory Committee
Santa Fe, New Mexico
18
William A. Riaski, Executive Director
19 Izaak Walton League of America
Glenview* Illinois
20
John A. Ricker
21 4723 Broadway
Chicago, Illinois
22
R. W. Richards, Manager
23 Chicago Office, Stanley Consultants
Chicago, Illinois
24
25
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64
1 OTHERS IN ATTENDANCE (CONTINUED):
2 M.D.R. Riddell
Greeley & Hansen
3 Chicago, Illinois
4 Joan Riehm
Northwestern University
5 Evanston, Illinois
6 Mrs. Robert Rife
League of Women Voters
7 Chicago, Illinois
8 John E. Riley, Manager
Melpar, Inc.
9 Falls Church, Virginia
10 Joseph D. Riley
Legal Tax Insurance Manager
11 ¥elch Grape Juice Company
Wenfield, New York
12
James C. Ringenoldus, Head
13 Water Resource Division
Harza Engineering Company
14 Chicago, Illinois
15 Mrs. Clifford Risley
3235 Grand Boulevard
16 Brookfield, Illinois
17 Clifford Risley, Jr., Director
Chicago Program Office
18 Federal Water Pollution Control Administration
Chicago, Illinois
19
William Neale Roach
20 Koehler-Dayton, Inc.
Washington, D. C.
21
Mrs. Raymond E. Robertson, President
22 League of Women Voters of Illinois
Chicago, Illinois
23
24
25
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* OTHERS IN ATTENDANCE (CONTINUED):
2 Clarence J. Robson, Sanitary Inspector
Chicago Sanitary Water Board
3 Chicago, Illinois
4 Robert W. Roden
University of Wisconsin
5 Madison, Wisconsin
6 E. N. Rogers, Chief Estimator
Dunbar & Sullivan Dredging Company
7 Chicago, Illinois
8 Ted Rogowski, Asst. Solicitor
Federal Water Pollution Control Administration
9 Washington, D. C.
10 Mrs. Samuel Rome, Water Resources Chairman
League of Women Voters of Illinois
11 Chicago, Illinois
12 Judie Romso, Asst. Midwest Bureau Chief
Chemical Week Magazine
13 Chicago, Illinois
14 Thomas Allan Rose
Vice President & General Manager
15 American Bowser Corporation
Aurora, Illinois
16
Earl Rosenberg, Vice President of Engineering
17 Laicon, Inc.
LaGrange, Illinois
18
Dr. P. J. Hosenbloom, Health Commissioner
19 Gary Board of Health
Gary, Indiana
20
Mrs. Haskell Rcsemblum
21 Water Pollution Control Advisory Board
U. 3. Department of the Interior
22 Washington, D. C.
2^ Philip Rothenberg, Attorney
Metropolitan Sanitary District of
24 Greater Chicago
Chicago, Illinois
25
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66
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Edward C. Rubin, Regional Manager
Chicago Pump - PMC Corporation
3 Oakorook, Illinois
4 Arthur K. Rude, Alderman
City of Muskegon
5 l\or^h Muskegcn, Michigan
6 Rooert Ruleau
Ruleau Brothers Fisheries
7 Cedar River, Michigan
g William Rummei, Program Advisor
U. 3. Customs
9 Chicago, Illinois
10 Marllynn Rust
Kedill School of Journalism
11 Evanston, Illinois
12 Robert H. Ruskamp, General Engineer
GSA-PBS Region V
13 Building Management Division
Chicago, Illinois
14
Harold S. Russell
15 11 South LaSalle Street
Chicago, Illinois
16
G. H. Ruston, Manager
17 Racine Water Utility
Racine, Wisconsin
18
Herman J. Ruta, Regional Engineer
19 Chicago Pump
Oakbrook, Illinois
20
Roger E. Sacis
21 University of Wisconsin
Madison, Wisconsin
22
Charles Sandor, Superintendent
23 Hammond Water Department
Hammond, Indiana
24
25
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61
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Mrs. Esther Sapersteln
State Senator
3 Chicago, Illinois
4 George Sawicki, Co-chairman
Group 400, Cook County Clean Streams
5 Niles, Illinois
6 Eugene Sawyer
Civil Engineer V
7 Bureau of Chicago
Chicago, Illinois
8
LeRoy Scarce, Director of Laboratories
9 Federal ¥ater Pollution Control Administration
Chicago Program Office
10 Chicago, Illinois
H Donald Schantz, Vice President
Gulf & Western Auto Appliance Division
12 Grand Rapids, Michigan
13 Robert E. Scheible, Chief Sanitary Engineer
Headquarters Fifth U. S. Army
14 Fort Sheridan, Illinois
is Steven Schiff, Research Aide
Commission on Illinois Government
16 Chicago, Illinois
17 Dianne Schlenz
Harrington, Illinois
18
Harry E. Schlenz, President
19 Pacific Flush Tank Company
Chicago, Illinois
20
Norma Schlenz
21 Barrington, Illinois
22 Allan F. Schmalzriedt
Asst. General Counsel
23 Chesapeake & Ohio Railway
Detroit, Michigan
24
25
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68
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Ed Schmid, Asst. to President
Reserve Mining Company
3 Silver Bay, Minnesota
4 R. Stephen Schneider, Editor
Great Lakes Foundation
5 Ann Arbor, Michigan
6 Arthur Schrage, Chief of Field Operations
Federal Water Pollution Control Administration
7 Detroit Program Office
Grosse lie, Michigan
8
William J. Schuck, Regional Economist
9 Federal Water Pollution Control Administration
Chicago, Illinois
10
Jeanette B. Schultl, Water Resource Chairman
11 Palos Orland League of Women Voters
Palos Park, Illinois
12
Mrs. Paul Schulze III
13 33 East Cedar Street
Chicago, Illinois
14
Paul Schulze III, Executive Vice President
15 Schulze-Burch Bis. Company
Chicago, Illinois
16
Ray A. Schuster, Special Projects Editor
17 Plant Engineering Magazine
Barrington, Illinois
18
Dr. Henry G. Schwartz, Jr., Project Engineer
19 Sverdrup & Parcel
St. Louis, Missouri
20
Raymond A. Schwarz, Biologist
21 Forest Preserve District of
Cook County
22 River Forest, Illinois
23 C. H. Scott, Director of Sales
American Bowser Corporation
24 Aurora, Illinois
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Roger G. Seaman
Metropolitan Sanitary District
3 of Greater Chicago
Chicago, Illinois
4
H. W. Seeley, Asst. Vice President
5 and Chief Engineer
Ann Arbor Railroad
6 Dearborn, Michigan
7 Gerald D. Seinwill
University of Wisconsin
8 Madison, Wisconsin
9 Robert K. Sengw, Engineer
University of Wisconsin
10 Agricultural Engineering Department
Sun Prairie, Wisconsin
11
Mrs. Robert Sessums
12 125 Magnolia Drive
Metairie, Louisiana
13
Roy T. Sessums
14 Pollution Advisory Board
New Orleans, Louisiana
15
John T. Sewell, Director
16 Federal Programs
Board of Education
17 Green Bay, Wisconsin
18 Edwin S. Shannon, Manager
Pollution Control, Dow Chemical Company
19 Midland, Michigan
20 James L. Sheadon, Supervisor
USDA-C&MS-CFP
21 Chicago, Illinois
22 David Shaerer, Maintenance Engineer
Eaton Yale & Towne
23 Valve Division
Battle Creek, Michigan
24
25
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1
OTHERS IN ATTENDANCE (CONTINUED):
2 C. Owsley Shephard, Special Writer
Chicago's American
3 Chicago, Illinois
4 Peter J. Sheridan, Editor
Occupational Hazards Magazine
5 Cleveland, Ohio
6 Mrs. John E. Shreve
Steering Commission for Indiana
7 Lake Michigan Inter League Group
League of Women Voters
8 Michigan City, Indiana
9 Mrs. John Shubeck
League of Women Voters
10 Arlington Heights, Illinois
11 M. W. Sibley, Water Engineer
Rock Island Railroad
12 Chicago, Illinois
13 Mrs. Milton Sibley
601 Walker Street
14 Michigan City, Indiana
15 Robert C. Singer
Public Relations Director
16 The Soap & Detergent Association
New York, New York
17
Mrs. Antone G. Singsen
18 League of Women Voters of Winnetka
Winnetka, Illinois
19
Joseph Skok, Staff 'Writer
20 Chicago Department of Water & Sewers
Chicago, Illinois
21
John Skorupski, Water Superintendent
22 City of South Milwaukee
South Milwaukee, Wisconsin
23
Alan Slingo, Sanitary Engineer
24 Department of the Navy
Great Lakes, Illinois
25
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71
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Joseph V. Slovick, Hydraulic Technician
Federal Water Pollution Control Administration
3 Chicago, Illinois
4 Stephen P. Small
Northwestern University
5 Chicago, Illinois
6 William D. Smart, Director
Chemical Manufacturing
7 Abbott Laboratories
North Chicago, Illinois
8
Murray C. Smith
9 Portage City Council
Portage, Indiana
10
Robert W. Smock, Resident Editor
11 Steel Magazine
Chicago, Illinois
12
James C. Soper, State Senator
13 Seventh District, Secretary
Northern Illinois Water Resources Commission
14 Cicero, Illinois
15 Kenneth E. Sorensen, Vice President
Harza Engineering Company
16 Chicago, Illinois
17 Paul T. Spelman, City Engineer
City of Wyoming
18 Wyoming, Michigan
19 Charles M. Squarcy, Asst. to Vice President
Inland Steel Company
20 East Chicago, Indiana
21 Fred Staben, Asst. Superintendent
Waukegan Water Utility
22 Waukegan, Illinois
23 Mrs. P. Stafford
Lake County League of Women Voters
24 Hobart, Indiana
25
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72
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Shirley Stan
ilOO West Madison
3 Chicago, Illinois
4 Elmer W. Stange
McHenry Clean Streams
5 I McHenry, Illinois
6 William E. Stanley, Senior Associate
Ryckman-Edgerley-Burhank & Associates
7 Clarendon Hills, Illinois
8 Mrs. Robert L. Stanton
League of Women Voters
9 LaGrange, Illinois
10 John B. Stark
5645 North Central Avenue
11 Chicago, Illinois
12 Curtis Steen, Plant Manager
Stokely Van Camp Inc.
13 Hart, Michigan
14 J. E. Stein, Director
Research & Development
15 Metropolitan Sanitary District
of Greater Chicago
16 Chicago, Illinois
17 A. E. Steinbrecher, General Manager
Northern Michigan Electric Corp.
18 Bayne City, Michigan
19 Jack W. Steiner, Sanitary Engineer
Water Purification Division
20 Chicago, Illinois
21 S. M. Stephenson, Director
Department of Environmental Health
22 Holland, Michigan
23 A. M. Sterba, Associate
Consoer, Townsend & Associates
24 Consulting Engineers
Chicago, Illinois
25
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73
1 OTHERS IN ATTENDANCE (CONTINUED)j
2 Bennett M. Stewart, Asst. to Chairman
Chicago Federal Executive Board
3 Chicago, Illinois
4 Susan Stocking
1570 Ashland Avenue
6 Evanston, Illinois
$ Fred Stone, Sales Manager V
Monogram Ind.
7 Los Angeles, California
g Jerry Stostrom
Community News Service
9 Chicago, Illinois
10 William Straczek
Director of Laboratory
11 Sanitary District of Bloom TWP
Chicago Heights, Illinois
12
Philip B. Straus
13 Legislative Assistant
Illinois Legislature
14 Highland Park, Illinois
15 Earl E. Straynorn, Vice President
Metropolitan Sanitary District
16 of Greater Chicago
Chicago, Illinois
17
Len Strong, Senior Engineer
18 Honeywell Inc.
Harvey, Illinois
19
Mrs. Mad W. Sueewsky, Legislative Chairman
20 Wisconsin Federation of Women's Clubs
Mequon, Wisconsin
21
Martin Suess
22 322 Gillett Avenue
Waukegan, Illinois
23
24
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 D. A. Sullivan, Consulting Engineer
31^ West Suttenfield
3 Port Wayne, Indiana
4 David Sullivan, Reporter
United Press International
5 Chicago, Illinois
6 Mrs. James N. Sullivan
Tri-City Advertiser
7 Dolton, Illinois
8 E. R. Sutherland, Chairman
Thilmany Pulp & Paper Company
9 Kaukauna, Wisconsin
10 R. J. Sutphen, Division Manager
Dunbar & Sullivan Dredging Company
11 Chicago, Illinois
12 Art Swaer
Wholesale Fish
13 Green Bay, Wisconsin
14 Kenneth A. Swarts, Senior Engineer
Nuclear, Consumers Power Company
15 Jackson, Michigan
16 Arlene Szlung, Secretary
Federal Water Pollution Control Administration
17 Chicago, Illinois
18 Bruno Szpieg, Jr.
Plant Facilities Engineer
19 Continental Motors Corporation
Muskegon, Michigan
20
Mrs. Vera Tharp, Dietary Consultant
21 6lU South Fourth Street
Springfield, Illinois
22
Eugene Theios, Asst. Director
23 Division of Environmental Health
Lake County Health Department
24 Waukegan, Illinois
25
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75
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Richard R. Thiel
University of Wisconsin
3 Woddelton, Wisconsin
4 George E. Thiem, Trustee
Metropolitan Sanitary District
5 of Greater Chicago
Chicago, Illinois
6
Walter V. Thomas, Health Physicist
7 USAEC, Chicago Headquarters
Argonne, Illinois
8
Charles W. Thompson, City Manager
9 City of Wyoming
Wyoming, Michigan
10
Collins E. Thornton
11 Executive Asst. to Mayor
Michigan Grand River Watershed Council
12 Lansing, Michigan
13 Mrs. George Timmer
League of Women Voters
14 Elmhurst, Illinois
15 R. L. Toerlng, General Supervisor
Fuel & Steam Engineering
16 U. S. Steel - Gary Works
Gary, Indiana
17
Mrs. Ted Tom
18 League of Women Voters
Munster, Indiana
19
John W. Townsend
20 Consoer, Townsend & Associates
Chicago, Illinois
21
Lee E. Townsend, Director
22 Rochester Program Office
Federal Water Pollution Control Administration
23 Rochester, New York
24
25
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76
1 OTHERS IN ATTENDANCE (CONTINUED):
2 M. L. Trager, Administrative Assistant
Indiana & Michigan Electric Company
3 Fort Wayne, Indiana
4 V. P. Traina, Industrial Manager
Chicago Bridge & Iron
5 Oakbrook, Illinois
6 F. W. Trezise, Dean Engineering
University of Illinois - Chicago
7 Evanston, Illinois
8 Roy E. Trim, City Manager
City of Whitehall
9 Whitehall, Michigan
10 Mrs. Donald Trunys, Director
League of Women Voters of Indiana
11 Valparaiso, Indiana
12 Herman L. Tschentke, Chairman
Water Supply, Ridge Civic Council, Chicago
13 Chicago, Illinois
14 Fred E. Tucker, Manager
Pollution Control Services
15 National Steel
Weirton, West Virginia
16
Arthur W. Tuemler
17 Asst. to Works Chief Engineer
U. S. Steel Corporation
18 Chicago, Illinois
19 Logan E. Tuthill
Warren Cook Chemical Company
20 Richton Park, Illinois
21 Stan Twardy, Coordinator
Air & Water Conservation
22 Standard Oil Company
Chicago, Illinois
23
Dr. J. A. Vaichulis, Bacteriologist
24 Chicago Board of Health Laboratories
Chicago, Illinois
25
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TL
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Dorothy Van de Mark
629 Fullerton Parkway
3 Chicago, Illinois
4 Hichard A. Vanderhoff, Regional Director
Ohio Basin Region
5 Federal Water Pollution Control Administration
Cincinnati, Ohio
6
Dr. Cornelius A. Van Doren
7 Branch Chief, Bombelt
USDA Research, University of Minnesota
8 St. Paul, Minnesota
9 Fred N. VanKirk
Consoer, Townsend & Associates
10 Chicago, Illinois
11 E. G. VanSickle, Executive Secretary
Michigan Canners & Freezers Assn.
12 Shelby, Michigan
13 Mrs. James T. Venerable
League of Women Voters
14 of Crystal Lake
Huntley, Illinois
15
A. D. Ventrella, Staff Engineer
lfi Federal Water Pollution Control Administration
Chicago, Illinois
17
T. W. VerValin, Consultant
18 162 East Ontario
Chicago, Illinois
19
Stanley G. Viktora, Sanitary Engineer
20 Federal Water Pollution Control Administration
Chicago, Illinois
21
Frank I. Vilen, Superintendent
22 Water Pollution Control Division
Kenosha Water Utility
oq "
Kenosha, Wisconsin
24
25
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78
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Albert G. Vinict, President
Board of Trustees
3 City of East Chicago
Department of Water Works
4 East Chicago, Indiana
5 Kenneth R» Voight
Federal Water Pollution Control Administration
6 Chicago, Illinois
7 D. L. Voig.ts, Technical Director
Packaging Corporation of America
g Filer City, Michigan
9 Marilyn J. Voss
Medill School of Journalism
10 Northwestern University
Evans ton, Illinois
11
Mr. Robert Vujovich
12 Water Debris Removal
Chicago, Illinois
13
James Wahlman, Associate Editor
14 Pioneer Newspapers Inc.
Highland Park, Illinois
15
DeYarman Wallace, Research Supervisor
16 Youngstown Sheet & Tube
Youngs town, Ohio
17
Mrs. Melba Wallack
18 League of Women Voters
Chicago, Illinois
19
Robert 0. Waller, Chief Water Engineer
20 Bureau of Water, Dept. of Water & Sewers
Chicago, Illinois
21
John R. Walnout, City Councilman
22 City of Grand Haven
Grand Haven, Michigan
23
Henry P. Walsh, Executive Secretary
24 Great Lakes Anti-Pollution Society
Chicago, Illinois
25
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1 OTHERS IN ATTENDANCE (CONTINUED):
2 Handall D. Walthius
Public Relations Representative
3 U. S. Steel
Chicago, Illinois
4
Fred Wampler, Regional Coordinator
5 Ohio-Appalachian Area
U S. Department of the Interior
6 Cincinnati, Ohio
7 Colonel E. B. Warner, Chief
Engineering Division, DCS LOO
8 5B, U. S. Army, 5th U.S. Army Headquarters
Fort Sheridan, Illinois
9
Mrs. Isabel B. Was son
10 Water Resources Committee
Oak Park League of Women Voters
11 River Forest, Illinois
12 Bryan Watkins, District Engineer
Youngstown Sheet & Tube
13 East Chicago, Indiana
14 Earle W. Watts, Waste Supervisor
DuPont Company
15 Montague, Michigan
16 Russell V. Witts, Superintendent
North East Park District
17 Evans ton, Illinois
18 Mildred B. Weary, Clerk-typist
Federal Water Pollution Control Administration
10 Chicago, Illinois
20 P. J. Weaver
Soap & Detergent Association
21 New York, New York
22 Haven A. Weckwerth, Engineer
University of Wisconsin
23 Janesville, Wisconsin
24
25
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80
1 OTHERS IN ATTENDANCE (CONTINUED):
2 R. V. Weil, Asst. Manager
Engineering, Sinclair Refining Company
3 Harvey, Illinois
4 Edwin V. Weiss, Civil Engineer
U. 3. Corps of Engineers, NCD
5 Oak Park, Illinois
6 Dennis Wesolowski, City Chemist
East Chicago Sanitary District
7 East Chicago, Indiana
8 J. S. Whitaker, Coordinator
Environmental Health
9 Union Carbide Corporation
New York, New York
10
James J. White, Jr., District Engineer
11 U. S. Army Corps of Engineers, Detroit
Detroit, Michigan
12
Walter E. White
13 Special Projects,, Commercial Products
Atomic Energy of Canada Limited
14 Ottawa, Canada
15 Louis A. Whitesell, Deputy Attorney General
Sta^e of Indiana
16 Indianapolis, Indiana
17 Robert s. ""hitworth, Asst. Chief Chemist
Federal Hater Pollution Control Administration
18 Chicago Program Office
Chicagc, Illinois
19
Edward T. Wiest, Mayor
20 City of Wyoming
Wyoming, Michigan
21
Benjamin F. Willey, Director
22 Water Purification Laboratory
City of Chicago
23 Chicago, Illinois
24
25
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81
I OTHERS IN ATTENDANCE (CONTINUED)t
2 Oliver Williams, Information Officer
State of Wisconsin
3 Madison, Wisconsin
4 T. C. Williams, Consulting Engineer
City of St. Johns
5 Grand Rapids, Michigan
6 H. C. Wilson
7721 Coles Avenue
7 Chicago, Illinois
8 Ruth Wilson
League of Women Voters
9 Chicago, Illinois
10 Leo G. Windish, Past President
Illinois Division, Izaak Walton
11 League of America
Galva, Illinois
12
T. L. Williams, Regional Administrator
13 SEC, Federal Executive Board
Chicago, Illinois
14
P. Wlttlinger, Senior Consultant
15 Corplan Associates
Chicago, Illinois
16
Mrs. Arnold R. Wolff, Vice President
17 League of Women Voters of Illinois
Glencoe, Illinois
18
L. L. Wolfson, Senior Research Associate
19 Industrial Bio-test Laboratories
Northbrook, Illinois
20
Nancy Wood
21 Save the Dunes
Valparaiso, Indiana
22
Nancy F. Wood, President
23 North Wood Counter Lab
Chicago, Illinois
24
25
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82
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Paul H. Woodruff, Vice President
Roy P. Weston, Inc.
3 Wilmette, Illinois
4 Mrs. H. W. Wyld, Alderman
City of Urbana
5 Champaign County League of Women Voters
Urbana, Illinois
6
Mrs. Victor Yngve
7 League of Women Voters
Chicago, Illinois
8
John R. Yost, Vice President
9 Manufacturing
Ott Chemical Company
10 Muskegon, Michigan
11 C. T. Young, Vice President
Wisconsin Electric Power
12 Milwaukee, Wisconsin
13 Lenard B. Young, Regional Engineer
Federal Power Commission
14 Chicago, Illinois
15 A. E. Zanoni, Associate Professor
Marquette University
16 Milwaukee, Wisconsin
17 Howard Zar
University of Chicago
18 Chicago, Illinois
19 Steven Zarbin
Chemist
20 Federal Water Pollution
Control Administration
21 Chicago Program Office
Chicago, Illinois
22
23
24
25
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83.
1 OTHERS IN ATTENDANCE (CONTINUED):
2 Donald P. Ziemke
City Manager
3 City of Muskegon Heights
Muskegon Heights, Michigan
4
5 Mrs. Robert Zilly
State Chairman
6 Water Resources
League of ¥omen Voters of Michigan
7 Stevensville, Michigan
8
Mrs. Richard Zimmermann
9 Water Chairman
League of Women Voters
10 of Glen Ellyn
Glen Ellyn, Illinois
11
12 Everett P. Zurn
Water Pollution Control
13 Advisory Board
Pairview, Pennsylvania
14
15 Mrs. Walter M. Zwiger
League of Women Voters
16 Evanston, Illinois
17
18
19
20
21
22
23
24
25
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OPENING STATEMENT - MAYOR DALEY
2
3 PROCEEDINGS
4
g OPENING STATEMENT AND WELCOME
6 THS HONORABLE RICHARD D. DALEY, MAYOR
7 CITY 0? CHICAGO, ILLINOIS
8
9 MAYOR D/-LEY: Ladies and gentlemen, Assistant
Secretary Max N. Edwards, Governor Kerner,
Senator Nelnon, distinguished guests, distin-
12 guished public officials, ladies ?nd gentlemen
13 On behalf of the people of Chicago,
I take great pleasure and pride in welcoming
15 you to our city. You will find you could not
have picked a more fortunate meeting place for
your serious and great deliberations
As you leave this building, I hope
that you will take time to wai:<: a few blocks
20 east and view our lake front, Lake Michigan
2i The lake serves Chicago in many ways
22 The site for the city was selected originally
23 because the great waterways were a means of
24 ! transportation. Raw materials could be hauled
25 ! by barge to Chicago. With the development of
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1 OPENING STATEMENT - MAYOR DALEY
2 the St. Lawrence Seaway Project, Chicago has
3 become the greatest seaport on the Great Lakes.
4 The lake has made possible the establishment
5 and the prospering of a great industrial complex
g It also is the picture-card seascape for the
7 large hotels and apartment buildings which line
g our shores.
9 In the summertime, the lake is the
10 playground for sail boats and pleasure craft
H of all descriptions. But more importantly,
12 millions of people are depending upon Lake
13 Michigan for their drinking water. Our citizens
14 sun themselves along its shores and bathe at
15 its beaches.
16 Lake Michigan has always been one
17 of the most treasured assets and we deeply
18 cherished it. We have generally prevented
19 industry from building along the shore and
20 thereby preserved its value as a source of
21 recreation for the people of Chicago. Vir-
22 tually all of Chicago's 29 miles of shoreline
23 are devoted to public use, including some 30
24 beaches and 8 marinas.
25 I am happy to be here in one room
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86.
OPENING STATEMENT - MAYOR DALEY
2 with distinguished officials from the four
3 States sharing concern for this vital natural
resource.
e That concern is an immediate one.
o
- The danger is an immediate one. The danger to
7 Lake Michigan is not a remote threat. We are
g told that the lake will be useless unless we
do something and do it soon. I know we all
10 feel the sense of urgency.
There is no need to review the danger
12 signs We've all seen, the signs of beaches
13 in many areas saying, "No swimming—polluted."
14 We all remember the recent nuisance of dead
15 alewives, the unseemly sight of weeds and algae
16 along the shore, and the massive oil slicks
17 of only last summer.
18 We know the problem of water pollution
is increasing. We know this in ways which can
20 be measured. During the past 20 years the City
of Chicago has had to increase the amount of
22 chlorine used to achieve water sefety from 15
23 to 25 pounds per million gallons. This is an
24 increase of 67 percent. We have had to increase
25 the activated carbon dosage, to remove objectionable
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87_
. fVYnVFT - Viivrv;? r\£ T VV
2 odors and tastes, from 24 to kl pounds per
3 million gallons and other chemicals used to
4 remove suspended matter from 103 "to 119 pounds
5 per million gallons. These are increases of
§ 71 and 15 percent respectively. In all, the
7 cost of chemical treatmert has increased by
g 92 percent during the past 20 years.
9 Professional experts from «he Chicago
10 Department of Water and Sewers wil'... provide
11 additional testimony later co support in detail
12 the urgent need for water pollution control.
13 We know that it will be expensive to
14 end pollution of ~ohe lake. \Ie are not mini-
15 mizing the expense; but we also know that it
16 will never be cheaper to end pollution than
17 right now. The cost will be several times the
18 present amount if the lake is further degraded.
19 Thus, delay in facing this problem now will be
20 even more costly in the future. Eventually the
21 price will have to be paid because ohe people
22 of our several States will not permit Lake
23 Michigan to become overgrown wich weeds and
24 algae and die a premature death.
25 This meeting therefore represents
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88
1 OPENING STATEMENT - MAYOR DALEY
2 both a challenge and an opportunity to plan
3 constructively -co keep this great "body of
4 water alive. Its future is In your hands.
5 There are those who feel that the
6 cities have bypassed the State Governments
7 in going to the Federal Government in Washing-
8 ton directly .with their problems. There are
9 sone mayors who feel that only the Federal
10 Government is in a position to help them.
11 There is a feeling, too, thac the State Govern-
12 mento are not overly concerned or aware of the
13 problems of the urban centers. This four-state
14 conference is an answer to their fears.
15 The State Governments of Illinois,
16 Indiana, Michigan and Wisconsin are to be con-
17 graculated for acting as rapidly as they have
18 in the present crisis. All four States have
19 submitted water quality criteria and the Federal
20 Government has recently approved the submissions
21 of all four States.
22 ! We believe the State Governments must
2^ i assume responsibility in taking the lead in
24 efforts to revitalize Lake Michigan. It is
25 up to the States to provide leadership for
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89
OPENING STATEMENT - MAYOR DALEY
municipalities and other local Jurisdictions
3 to meet this problem in a bold and constructive
4 manner. Drastic action is required because
5 the situation is extreme and urgent. In Illinois
we are proud of Governor Kerner's leadership in
proposing programs to meet the challenge. A
billion dollar water and air management bond
9 issue, which we are confident will be approved
10 by the voters, is an example. Governor Kerner's
n request to Secretary Udall for this meeting is
12 another example of his concern
13 The four States must join forces con-
14 structively and work in conjunction with the
Federal Government to establish and implement
16 uniform standards or surely the Federal Govern-
17 ment will be forced to impose its own regulations
18 and implementation schedule. We need Federal
19 guidelines, but surely we have the talent and
20 the resources within our boundaries to meet
21 this problem.
22 But meet it we must. Lake Michigan
23 is too precious a resource to be lost because
24 of indecision of diffused solutions.
25 We have the opportunity to make a
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90
1 OPENING STATEMENT - MAYOR DALEY
2 successful start today at saving a great natural
3 blessing we all share.
4 In Chicago we already have taken
5 measures to end pollution by both commercial
5 vessels and pleasure craft. However, neither
7 Chicago nor any other city or State can do the
g job alone. Pollution cannot be stopped in one
9 area alone. It must be stopped everywhere in
10 the lake. The waters which touch all our
H shores respect no imaginary boundary line.
12 We need help of industry also. The
13 people of our States are keenly interested in
14 these problems and insist on nothing less--and
15 they are entitled to it--than a clean and safe
16 lake.
17 Lake Michigan's waters can be made
18 usable for multiple activities and has set the
19 example for others. Over the years Chicago
20 has spent millions of dollars to reverse the
21 flow of the Chicago River and prevent it from
22 discharging its filth into the lake. Hundreds
23 of millions of dollars were expended in the
24 construction of the world's largest waste treat-
25 ment plants .
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91
l OPENING STATEMENT - MAYOR DALEY
2 In your States you may not be able to
s reverse the flow of a river, but there are con-
4 structive acts you can take. You can adopt
5 uniform quality standards and time schedules
6 for implementation and enforcement covering all
7 of Lake Michigan. You can adopt a uniform set
8 of regulations and time schedules for controlling
9 wastes from watercraft. You can support re-
10 search directed toward restoration and maintenance
n of pure water in the lake. And finally, you can
i2 support special efforts to provide additional
13 financial help for the Bureau of Fisheries to
14 conduct research into corrective measures for
15 the alewife problem.
16 ¥e would like to thank the press, the
17 radio, the television and private organizations
18 for their interest in this vital problem.
19 Speaking as the Mayor of the city,
20 we pledge our whole-hearted support to your
2i endeavors. This means our financial, professional
22 and physical resources are ready andawaiting your
23 directions in a collective effort to wage a total
24 war to save our lake.
25 I am sure you will be hearing many
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92_
1 OPENING STATEMENT - MAYOR DALEY
2 worthy suggestions at this conference for con-
3 structive action. I can assure you that your
4 deliberations will be of vital interest to the
5 people of Chicago and, indeed, to all our four
5 States. The people of our entire area are
7 awaiting your decisions which will bring them
a cleaner, purer Lake Michigan this summer and
9 the next and in the future.
10 Again I welcome you to our city. I
11 am confident with the men and the women and
12 with the ability and talent that is in this room
13 we will come out with a very constructive and
14 positive program.
15 At this time I would like to introduce
16 the very able, distinguished and capable Governor
17 of Illinois, Governor Otto Kerner.
18 (Applause.)
19
20
21
22
23
24
25
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9_3_
j GOVERNOR KERNER
2
3 ADDRESS OP WELCOME
4 THE HONORABLE OTTO KERNER, GOVERNOR
5 STATE OP ILLINOIS
6
GOVERNOR KERNER: Thank you very much,
g Mayor Daley.
9 Senator Nelson of Wisconsin, Secretary
10 Edwards, the many distinguished members who are
n here.
12 At this time, of course, I only wish
13 to issue a few words of welcome. I will not
14 dwell at this time on the technical statement
15 that I wish to make later.
16 But I think it time that we become
17 acquainted with the problems that face us.
18 My interest in this area goes back long before
!9 I was Governor, when I was County Judge of this
20 County and had considerable responsibility in
21 appointment of and overseeing the Sanitary
22 Districts of Cook County other than the Metro-
23 politan Sanitary District. I was well aware of
24 the growth of these problems, and Illinois has
25 moved ahead internally in the streams and the
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91
1 GOVERNOR KERNER
2 lakes and the rivers of Illinois and they have
3 been improved over a period of time. Fishlife
4 exists today where it did not exist a number
5 or years ago.
6 I think, too, that in our experience
1 with the growth of government and its respon-
8 sibility certain of these problems cannot be
9 solved by States or local communities alone.
10 With air and water pollution we have recognized
H this and there has been a cooperative move on
12 the parts of Governments, Federal, State and
13 local, and this is the only way that these
14 problems can be solved.
15 I am aware of our neighbors on all
16 sides and have tried to work in very cooperative
17 and neighborly fashion. We have to agree that
18 with currents of lakes, with currents of air
19 and the mobility of our people a State or a
20 local community alone cannot solve the problem.
21 This was the purpose of my requesting of Secretary
22 Udall the calling of a four-state meeting of those
23 States that bound Lake Michigan.
24 We of the Middle West, we of the Great
25 Lakes Basin particularly, have been most blessed
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95
1 GOVERNOR KERNER
2 by quantity and quality of fresh water. The
3 Great Lakes, I am told, hold 30 percent of the
4 world's fresh water supply, one of the most
5 valuable assets that we have in our vicinity.
6 In my visits with governors of the States to
7 the west, the arid States, they know the value
8 of water and they have protected it over a
9 period of years. We have wasted it and we
10 have polluted it and we must admit this fact
11 or else we shall not be able to solve the problem.
12 I am delighted to welcome you here
13 to the State of Illinois to solve this problem
14 that is multi-state in nature and affecting
15 millions of people and not only the present
16 but the future of this entire lake region area.
17 At this time I would like to Introduce to
18 you your host and your chairman of this meeting.
19 Unfortunately, Secretary Udall is ill. We all
20 know what a hardy man he is; I have tried to keep
21 up with him walking, and I walk at a fairly good
22 pace. But unfortunately, he is laid up with the
23 flu, I understand, and cannot be here. Secretary
24 Edwards is here to take over and will chair this
25 meeting. Secretary. (Applause.)
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j ASSISTANT SECRETARY EDWARDS
2
3 STATEMENT OP THE HONORABLE
4 MAX N. EDWARDS, ASSISTANT SECRETARY
6 U* S. DEPARTMENT OF THE INTERIOR
6 WASHINGTON, D, C.
7
g ASSISTANT SECRETARY EDWARDS: Thank
g you, Governor Kerner.
10 Mayor Daley, Senator Nelson, distin-
^ guished guests, members of the press, and all
12 friends who are engaged in that worthy battle
13 ror clean water.
14 I woul'd like to compliment each and
15 every one of you not only for your attendance
16 but particularly for your enthusiasm.I can see
17 that you mean business, and I hope that after
13 this conference has concluded you will agree
l$ that we mean business.
20 Last night was a rare historic evening
2i in the Nation's Capitol. I was fortunate in
22 having the opportunity to accompany Secretary
23 Udall to Ford's Theater, where more than 103
24 years ago John Wiltes Booth struck down the Great
25 Emancipator. Last night a terrible thing
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97
1 ASSISTANT SECRETARY EDWARDS
2 happened at Ford's Theater. No one was shot,
3 "but Secretary Udall was stricken with the flu,
4 and when I went by to pick him up this morning
5 at 7:30 he was in agony and Just unable to make
6 the trip here — one which he has planned attending
7 for some time and one in which he has great
g dedication and interest. I realize that this
9 .is a disappointment to all of you. I will do
10 my very best to represent him by reading the
11 statement which he had prepared.
12
13
14
15
16
17
18
19
20
21
22
23
24
25
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28.
1 STATEMENT OF SECRETARY UDALL
2
3 STATEMENT OF THE HONORABLE STEWART
4 L. UDALL, SECRETARY OF THE INTERIOR
5 PRESENTED BY
6 ASSISTANT SECRETARY MAX N. EDWARDS
7
8 ASSISTANT SECRETARY EDWARDS: "We are
9 here to put positive action into our concern to
10 save one of the Nation's great natural resources--
11 Lake Michigan.
12 "Lake Michigan is sick, but I believe
13 we are all determined it shall not die. That is
14 why we convene this Federal enforcement conference
15 on the water pollution problems of Lake Michigan
16 and its tributaries.
17 "We are here today because of the fore-
18 sight, determination and leadership of many people^
19 especially Governor Otto Kerner of Illinois and
20 Senator Gaylord Nelson — leading spokesmen for
21 strong governmental policy for water quality.
22 Both of them asked me to call this enforcement
23 conference.
24 "Also, I thank our host, Mayor Richard
25 Daley, who seeks at every opportunity a better
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! STATEMENT OF SECRETARY UDALL
2 environment for the people of Chicago and whose
3 strong leadership has commanded constructive
4 and positive action for cleaner waters. We
5 will get Lake Michigan cleaned up faster if
, we translate his decisive call into equally
o
7 decisive action.
8 "I congratulate the Chicago press and
9 other news media of the area for their campaign
10 against water pollution. This forceful, pene-
jj trating news coverage has been instrumental in
w arousing public awareness and personalizing the
13 shame of pollution. It is in the finest tradi-
14 tion of the public interest news service.
15 "The parties to the conference--the
16 States of Illinois, Indiana, Michigan and
17 Wisconsin, and the Federal Government—have a
lg stake in the outcome of this enforcement con-
19 ference and the future of Lake Michigan.
2o "Lake Michigan has been rich in aquatic
21 treasures for the five and one-half million
22 citizens in its Basin. Other millions in the
23 surrounding area, and, indeed, in the Nation,
24 have reaped its benefits.
25 "Today, its waters satisfy the demands
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100
STATEMENT OF SECRETARY UDALL
2 of millions of people in fifty cities for one
3 and one-half "billion gallons daily. Industry
pumps out another four and one-quarter billion
gallons daily to produce the fabric of a pros-
perous society.
"Lake Michigan is a swimming place,
waterskiing and boating grounds for millions.
9 Five-hundred and thirty-six of the 625 recreation
10 areas of the Basin are water-oriented, and there
11 are 7^ recreational harbors.
12 "The deep-draft navigation chain of
13 the Great Lakes enables ships to transport
14 annually nearly one hundred million tons of
15 goods--coal, Iron ore, stone, grain, petroleum
products--over Lake Michigan to markets and
manufacturers.
13 "The Lake and its tributaries are
19 nursery and habitat for commercial and sport
20 fisheries.
2i "But there are other facts that are
22 not to be recited with such pleasure.
23 !IA stench rises from its shore at
24 Chicago, and algae slime the shore of Calumet
25 Park beach.
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101
1 STATEMENT OF SECRETARY UDALL
2 "'Polluted water—no swimming1 signs
3 are posted at favorite beaches in Hammond, Green
4 Bay and Milwaukee.
5 "Oil scums foul Sturgeon Bay, and
6 I debris clogs the Indiana Harbor Ship Canal.
7 "Fish slosh belly up onto the beaches
8 of Indiana Dunes.
9 "The commercial fishing industry totaled
10 $9-3 million in 1963, a drop from the $15-6 mi
11 catches in the 1950 period.
12 :lThe City of Green Bay spent millions
13 for a 50-mile pipeline to reach a fresh municipal
14 water supply in the lake.
15 "These are symptoms of a sick lake.
16 And they recur too often for comfort. The
17 symptoms should be familiar. We saw them 15
18 years ago in Lake Erie, victimized by pollution
19 in just this way. An enforcement conference
20 was called in 1965 to cope with Lake Erie's
21 critical pollution conditions. For years, that
22 lake was the dumping grounds for unchecked
23 municipal and industrial wastes.
2* :lLakes age naturally and in thousands
25 of years they die. But Twentieth Century man--
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102
1 j STATEMENT OP SECRETARY UDALL
2 his numbers, his activities and his machines--
3 when unchecked, accelerate this action called
!
4 eutrophication. A lake once served hundreds of
5 generations of men. Now one generation of men
i
6 can destroy a lake--permanently.
7 "Man's activities add more nutrients,
g overfertilizing the aquatic plants in a lake.
9 These plants increase and, when they die, organic
10 deposits pile up on the lake bottom. The lake
11 becomes shallower, smaller, wurmer, and organic
12 decay depletes the supply of oxygen. The lake
13 becomes a marsh and eventually disappears.
14 "The serious accelerated eutrophication
15 of Lake Erie shows algal growths occurring with
16 increased frequency. Obnoxious slimes and odors
17 are prevalent, and areas of the lake bottom are
18 devoid of oxygen. The value of the lake is
19 seriously impaired.
20 "As a result of the Lake Erie Enforce-
21 ment Conference, we now have a remedial program
22 of pollution abatement worked out to slow down
23 this aging. But, purity of the kind known at
24 the turn of the century can never be restored
25 to Lake Erie. Man acted too late.
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103
1 STATEMENT OF SECRETARY UDALL
2 "Not so with Lake Michigan. We are
3 luckier here. We now have more knowledge and
4 foresight. We recognize the symptoms in an
5 earlier stage and are in a position to arrest
6 the disease. We still have time to restore
7 quality to the lake.
g "Lake Michigan's pollution problem
9 today would compel action, even if conditions
10 were static. But, conditions are not static
11 and this compounds the problem. Without swift
12 and effective action, we will soon face another
13 Lake Erie situation.
14 "Demands on the resources of Lake
15 Michigan multiply and intensify. In 50 or 60
16 years, it is predicted that:
17 "--the population of the Basin will
18 double;
19 "--industry will expand six times;
20 "--industrial demands for la.ke water
21 will increase three times;
22 "--municipal demands for lake water
23 will increase three times;
24 "--water recreation demands will in-
25 crease three times.
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1 STATEMENT OF SECRETARY UDALL
2
3 ; "Delay means death to Lake Michigan.
4 And death of Lake Michigan would be a national
5 tragedy. So I call upon every participant at
6 | this Conference to make it an action Conference-
7 ! action to analyze the problems of the lake, set
g goals, and implement effective pollution control
9 solutions."
10 "Two previous enforcement actions
11 have been held in the Lake Michigan Basin:
12 the Menominee River Conference, involving
13 Michigan and Wisconsin, convened in Novem-
14 ber of 1963] and the Calumet Area Conference,
15 involving Illinois and Indiana, convened in
16 March of 1965. The Menominee River Conferees
17 recommended action to cope with problems
18 of paper mill wastes and municipal sewage.
19 The Calumet Conference directed a cleanup
20 of municipal and industrial wastes in Illinois
21 and Indiana. Today we can see some beneficial
22 results of those Conferences.
23 "The Federal Government, the States
24 and municipalities of the Lake Michigan Basin
25 have taken other pollution abatement steps
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105
! STATEMENT OF SECRETARY UDALL
2 previously. Illinois and Indiana are proposing
3 large bond issues to finance the construction
4 of vitally important waste treatment works.
5 Pollution has been a matter of concern to these
6 agencies for several years.
7 "it has now become evident, however,
8 that these partial actions are not sufficient
9 to cure the problems of Lake Michigan. The
10 disease is not limited to one limb or tributary—
H but affects the whole body and system of the
12 lake. We must have a lake-wide prescription
13 for a disease that affects the entire lake.
14 "Pollution crosses political boundaries;
15 so must solutions.
16 "Oil that spills in the lake at Gary
17 oozes onto the beaches at Milwaukee.
18 "Wastes that flow into intrastate
19 rivers become interstate problems as the river
20 feeds into the lake.
21 "Solutions must be lake-wide for such
22 problems common to the Basin as algae growths
23 and eutrophication, present and potential thermal
24 pollution from electric power plants, disposal
25 of dredged spoil, and oil discharges.
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106
1 STATEMENT OP SECRETARY UDALL
2
3 "We must cope with the pollutants--
4 both present and potential:
5 "--bacteria;
6 "--chemicals;
7 "--sediment and silt;
g "—oil and sludge;
9 "--plant nutrients, phosphates
10 and nitrates;
11 "--pesticides;
12 "--radioactive substances; and
13 --heat.
14 "Which come from sources--both specific
15 and general:
16 "--municipal sewage;
17 "--combined sewers;
18 "--urban drainage;
19 "--industrial wastes of all kinds;
20 "--Federal installations;
21 "--agricultural runoffs;
22 "—power plants, both fossil-fueled
23 and nuclear, built and planned;
24 "--commercial and pleasure boats; and
25 "--dredging and disposal operations."
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107
1 STATEMENT OP SECRETARY UDALL
2
3 "I have called this Conference today
4 under authority granted me by provisions of
5 Section 10 of the Federal Water Pollution
6 Control Act, I am authorized to call a Con-
7 ference of this type when requested to do so
g by ths Governor of a State--in this case,
9 Governor Kerner--and when on the basis of
10 reports, surveys, or studies I have reason
11 to believe that pollution of interstate waters
12 subject to abatement under the Federal ACT; is
13 occurring.
14 "Pollution subject to abatement under
15 the Federal Act is pollution of navigable and
16 interstate waters which endangers the health
17 and welfare of any person. I have reports
18 that such pollution is occurring.
19 "The Conference brings together State
20 water pollution control agencies, the repre-
21 sentatives of the Federal Government and other
22 interested parties.
23 "The Conferees will be called upon
24 to make statements. In addition, they may call
25 upon participants whom they have invited to
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108
1 STATEMENT OP SECRETARY UDALL
2 the conference to make statements. At the
3 conclusion of such statements, the conferees
4 will be given an opportunity to comment or
5 ask questions.
6 "At the end of all statements, we
7 will have a discussion and try to arrive at
8 agreement on the facts of the situation. Then
9 we will summarize the conference.
10 "Under Federal law, I am required
H at the conclusion of the conference to prepare
12 a summary of it which will be sent to all the
13 conferees. This summary must include, and I
14 hope you will address yourselves to these issues:
15 Ml. Occurrence of pollution in inter-
16 state and navigable waters subject to
17 abatement under the Federal Act;
18 W2. Adequacy of measures taken toward
19 abatement of pollution; and
20 "3. Nature of delays, if any, being
21 encountered in abating the pollution.
22 "The States and the Federal Government
23 are full partners in this conference, Just as we
24 must be full partners in the results of the con-
25 ference.
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^_____ 109
! STATEMENT OP SECRETARY UDALL
2 "I ask that the results of this
3 conference be action—specific, strong and
4 coordinated action by the States as individuals,
5 the States as a group, and by the Federal
6 Government.
7 "For my part, as a representative
g of the Federal Government, I will make
9 recommendations for pollution abatement
10 actions following the conference--directing
H positive, specific pollution abatement measures
12 for industry and municipalities, including
13 dates for completion of these measures.
14 "The recommendations, following
15 public hearings, will be enforceable in the
16 courts, and I assure you that I shall be
17 prompt to do my part to see the recommendations
18 carried out.
19 "in addition, the Department of the
20 Interior has recommended legislation, and there
21 was action in the Congress last year on important
22 new authority for the Federal Government to
23 control some of the problems of Lake Michigan.
24 These include oil pollution and vessel pollution
25 controls and funds to step up research on lake
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110
1 STATEMENT OF SECRETARY UDALL
2 pollution as a whole. We shall continue to
3 work for enactment of these measures and for
4 funding of established programs.
5 "Action from the States at this
6 conference must include setting uniform
7 criteria for lake quality and agreeing on
8 control measures to reach those quality levels.
9 One of the most important areas of criteria
10 &nd controls for the States to tackle is tempera-
H ture requirements. Thermal pollution from
12 plants planned but not yet constructed on
13 the lake can be serious. Here is an oppor-
14 tunity for a dose of effective and crucial
15 preventive environmental medicine. We didn't
16 have this opportunity with other pollutants;
17 we must not miss our chance on this one. We
18 must halt thermal pollution with affirmative,
19 coordinated action before it occurs.
20 "Action from individual States after
21 the conference must Include passage and enforce-
22 ment of State laws to implement conference
23 decisions. State financing of abatement actions
24 and incentives for industrial abatement must
25 match the magnitude of the pollution problem.
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111
STATEMENT OF SECRETARY UDALL
"I am sure such actions will result
from the conference. They must result.
3
"Then we will know this conference
has been a success. More Importantly, we
5
will have started the rescue of a mighty re-
€
source--Lake Michigan--from an ugly, useless
death."
9
ASSISTANT SECRETARY EDWARDS: At
•r
this time I should like to introduce a member
of the conservation team, a man who has been
,_ very active in using every energy that he
12
has in controlling and abating both air and
13
14 water pollution, a man who is a friend of the
_ national parks, a man who has distinguished
,. himself as a leader in the legislative field
10
for conservation and certainly a dear friend
lg of Secretary Udall's, the Honorable Gaylord
Nelson, Senator from Wisconsin.
20 (Applause.)
21
22
23
24
25
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112
1 SENATOR NELSON
2
3 STATEMENT BY THE HONORABLE GAYLORD NELSON
4 THE UNITED STATES SENATE
5 STATE OP WISCONSIN
6
7 SENATOR NELSON: Mr. Secretary, Governor
8 Kerner, Mayor Daley, representatives of the
9 participating States and interested citizens.
10 All of us are here today because we
H share a common concern for Lake Michigan,
12 which Is one of our Nation's most precious
13 natural resources and which is now greatly
14 threatened by pollution. I should like at
15 the outset to commend Secretary Udall for
16 convening this conference and Governor Kerner
17 for requesting it. The Secretary's call
18 comes at a critical time in the life of this
19 great lake. It is now or never. Either we
20 respond with a great cooperative effort or
21 these waters will become a huge industrial-
22 municipal cesspool.
23 I want at this time to commend the
24 media who have shown an interest In this
25 problem, particularly the Chicago Tribune,
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113
1 SENATOR NELSON
2 the Milwaukee Journal, the Green Bay Press
3 Gazette, each of which ran a very significant
4 series of articles concerning the problem
5 of pollution and particularly pollution in
6 the lakes.
7 I would like to say to the conferees
8 something about the public concern about this
9 problem. In the past three years or so I
10 have spoken in every single State bordering
11 all of the Great Lakes on the question of the
12 pollution of these waters. I have spoken
13 more than once in every State bordering on
14 Lake Michigan on the question of the pollution
15 of Lake Michigan. I have found unanimous
16 support, without a single dissent thus far
17 in all the speeches I have given and all the
18 people I have talked to, not a single dissent
19 from the proposition that it is our responsi-
20 bility to start and start now with effective
21 abatement proceedings to cease the pollution
22 of this lake. I think there is a growing
23 recognition all over this country that the
24 environmental crisis that we are creating in
25 respect to the degradation of the environment,
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114
l SENATOR NELSON
2 the air and the water and the soil, is the
3 most serious problem in the long run that
4 confronts the country.
5 Lake Superior is the third greatest
6 body of fresh water on the face of the globe.
7 After Lake Baikal in Russia, which has 5,300
8 cubic miles of water, and after Lake Tanganyika
9 in Africa, then comes Lake Superior with 2,700
10 cubic miles of water and Lake Michigan with
n 1,100 cubic miles of water, all of it being
12 rapidly destroyed and the beginnings of the
13 destruction now, the very slow beginnings of
14 the destruction of Lake Superior, that should
15 be the next lake on which a conference is
16 called and I hope it will be. In any event,
17 unless we reverse this trend,within 25 years
18 there will not be left in America a single
19 unpolluted lake, not one, and unless we re-
20 verse the trend we will end up destroying all
21 fresh water-based recreation in the Nation.
22 The recently released report on the
23 pollution of Lake Michigan spells out a de-
24 basement of water quality in the lake which
25 is certainly unacceptable to any thoughtful
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^ 115
l I SENATOR NELSON
citizen. We are not here, surely, to assess
£
blame and wrangle about responsibility. The
3
fact is the whole Nation is responsible for
_ the degenerated condition of our fresh water
9
assets. Every major river basin and watershed
from coast to coast, without exception, is
polluted, some tragically and seriously pol-
O
luted and some with Just the beginnings of
»r
pollution. But there is not a single major
watershed or unpolluted river basin in America
2 today. We all condoned itj we all participated
,_ in itj we all share the responsibility.
13
14 Historically,all civilizations used their water
15 courses as the conduit for waste disposal.
16 Because of the remarkable capacity of water
17 to cleanse itself, this worked very well until
18 recent years. In the past half century we
19 have increasingly loaded the lakes and streams
20 beyond their natural capacity, and we have
2i introduced new industrial wastes that are
22 not biologically degradable.
23 I am sure that if we could turn
24 the clock back 50 years and had the benefit
25 of hindsight, or Teddy Roosevelt's foresight,
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116
! SENATOR NELSON
2 all of us, municipalities, industries, and
3 the general public, would agree to pay the
4 cost to prevent the damage from occurring in
5 the first place.
6 The problem now is to look to the
7 future and rectify a problem that it is within
8 our power to cure. That involves first a
9 frank recognition of the existing situation.
10 The report on Lake Michigan points out very
11 vividly that one of America's greatest lakes
12 is being pumped full of municipal sewage and
13 industrial wastes.
14 The basic purpose of this conference
15 is to direct efforts and resources of the four
16 border States and the Federal Government toward
17 setting up a meaningful pollution abatement
18 plan for Lake Michigan.
19 To halt the pollution of Lake Michigan,
20 we must identify each and every type of pol-
21 lutant that is going into the lake and stop
22 it at its source.
23 To accomplish this, the conference
24 should, I believe, adopt the following goals:
25 1. Establish a coordinated timetable
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117
I SENATOR NELSON
2 and uniform standards for abating
3 Industrial and municipal pollution.
4 2. Make the entire shore of Lake
6 Michigan fit for swimming once again.
6 3. Develop plans to restore the
7 water quality in special situations
g such as, for example, Green Bay.
9 4. Stop pollution from vessels and
10 ships of every form and from the
jj shore and terminal facilities.
12 (A) Adopt standards governing
13 effluent from wateroraft.
14 (B) Recommend establishment
15 of adequate shore facilities
16 for handling and disposing of
17 wastes and trash from ships.
18 5. Halt the dumping of polluted
19 dredged materials into the lake
20 wherever that is feasible.
2\ 6. Set up long-range research and
22 action programs to stop the ferti-
23 lization of the lake by detergents,
24 agricultural fertilizers, and other
25 chemicals. The conference should
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118
1 SENATOR NELSON
2 give early special attention to DDT
3 and other pesticides, but particularly
4 DDT, which is already appearing in the
5 lake in disturbing quantities.
6 The State water quality standards will
1 serve as guidelines for our program to clean up
g the most obvious sources of pollution, industrial
9 and municipal pollution. The first task of this
10 conference will be to establish a coordinated
11 timetable among the four States and uniform
12 standards for abating municipal and industrial
13 pollution of Lake Michigan.
14 The conference, I think, must address
15 itself to the many other types of pollution
16 which are plaguing Lake Michigan in addition
17 to just industrial pollution that we mentioned
18 before. Some of these sources or pollution
19 are difficult to pinpoint, but the vast majority
20 of them can and must be controlled if we are
21 going to reverse the tide of pollution now
22 infiltrating the lake.
23 It is critical that the conference
24 cover not only Lake Michigan but also many of
25 the grossly polluted tributary rivers that feed
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119
! SENATOR NELSON
2 Into it. In order, for example, to clean
3 up Green Bay and make It fit for swimming—
4 public beaches there have been closed since
5 1939~~we must clean up the Fox River.
6 We must stop all dumping of sewage
7 and refuse into the lake from ships and from
8 the shore and terminal facilities which service
9 these ships.
10 Right now our efforts to control
11 vessel pollution at all levels, local, State and
12 Federal, are hampered by outdated, inconsistent
13 laws and hopelessly entangled enforcement
14 procedures. The State of Wisconsin, for
15 example, has no Jurisdiction over waste
16 disposal from vessels on the Great Lakes
17 and certain other streams under Federal
18 Jurisdiction. Referring to this vessel
19 pollution problem in its water quality
20 standards program, the Wisconsin Department
21 of Natural Resources said that, "consistent
22 legislation affecting all the States seems
23 clearly indicated."
24 I urge the conference to establish
25 uniform, consistent regulations regarding
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120
1 SENATOR NELSON
2 dumping from ships and to make recommendations
3 for enforcing these regulations. Further,
the conference should establish standards
governing effluent from vessels and ships.
The conference should evaluate the
problem created by the dumping of polluted
dredging spoils into the lake. Any sound
recommendations that come from the present
pilot studies concerning alternative methods
for disposing of dredging spoils should be
12 enforced, I think, by the conference.
13 Eutrophication, as you have heard,
14 is a major problem on Lake Michigan. Lake
15 Michigan today, however, is aging, not at a
normal rate, but at a rate which has been
17 greatly accelerated by man's activities.
13 Phosphates, which fertilize luxuriant
19 algal growth, are a major contributor to the
20 problem. Phosphates are entering our waters
21 at a rate roughly equal to three and one-half
22 pounds per person per year. As much as 50 to
23 60 percent of this amount is coming from deter-
24 gents. The conference should, in my Judgment,
25 support legislation to remove from the market
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121
SENATOR NELSON
2 detergents heavy in phosphates or any other
3 substances which have a harmful—serious
harmful—effect on water quality.
There are, I feel, some additional
problems to which the conference ought to
address itself.
Pollution by non-degradable pesticides
threatens the fish and wildlife in Lake Michigan.
10 We will be frustrated in all our efforts, however,
11 if we don't move promptly to halt the use, as I
12 mentioned previously, of dangerous pesticides
13 like DDT.
14 DDT is a lethal poison which resists
15 breakdown for many years after application. It
lg is easily transported by water and wind, and
17 most importantly, it accumulates in the food
18 chain. Scientists are gathering evidence which
19 will show that DDT is causing wildlife fatalities
20 and disrupting the reproductive systems of
21 certain of our most prized birds, and we have
22 not yet begun to evaluate the effects that
23 these pesticides may ultimately have on man.
24 Today some 10 million people depend on Lake
25 Michigan for their water supply.
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122
1 SENATOR NELSON
2 In response to the rapid industrial
3 and municipal growth in the Midwest, giant
4 nuclear power plants are being built to supply
5 essential electricity. We must evaluate care-
6 fully the development of these plants from the
7 standpoint of both nuclear and thermal pollution.
8 Water used for cooling these plants is taken
9 from the lake and returned to it some 10 to 20
10 degrees warmer. The effects of nuclear power
11 plants must be evaluated carefully and proper
12 controls established and enforced.
13 Much of the success of efforts to
14 halt the pollution of Lake Michigan depend
15 on financing, as we all know. There are
16 instances where we know how to cure our
17 pollution problems but we lack the money
18 to construct the necessary facilities.
19 Financial resources at all government
20 levels today are seriously strained. I feel,
21 however, that we must recognize the task of
22 saving Lake Michigan for what it is, a top
23 priority Job which will require all available
24 energy and resources.
25 All four of the States involved have
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1 SENATOR NELSON
2 their own anti-pollution programs and they
3 are administering them conscientiously.
4 Many municipalities have worked hard
5 to set up sound pollution abatement programs
g and have even gone so far as to pass bond issues
7 to raise revenue needed to finance construction.
g The Federal Government, the Congress
9 and the Executive Branch made a commitment to
10 the people to do its share in 1966 when the
11 Clean Waters Restoration Act was passed by the
12 Congress. We have not kept that commitment.
13 I am disappointed with the Admini-
14 stration request to the Congress for only
15 225 million dollars for fiscal 1969 for the
16 Federal share of the costs of construction of
17 sewage treatment works. An expenditure of
18 700 million dollars was authorized for fiscal
19 1969.
20 Last year the Congress appropriated
21 only 203 million dollars of a 450 million
22 dollar authorization. I was hopeful that the
23 least that we could get for this year would
24 be the 450 million dollars that was authorized for
25 last year. A 450 million dollar appropriation
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j SENATOR NELSON
could put us back on the schedule that we set
up under provisions of the Clean Waters
a
Restoration Act.
We should do all that we can to
5
secure support for adequate Federal and State
6
financing for pollution abatement programs. I
think the next necessary step, in fact, is an
O
amendment to the Federal law which ups the
«f
Federal contribution for municipalities. We
went for many years on Federal matching funds
of 30 percent. We changed the law so that it
12
can go as high as 50 percent, but the fact of
13
14 the matter is it ought to be 90 percent Federal
15 money, 10 percent municipal and State money,
16 and then every single municipality in the
17 United States required to comply with the
18 highest status of the art with adequate treat-
jg ment plants.
2Q It seems a great tragedy to me that
everybody could universally applaud the Congress
22 in 1955 when it decided to spend 50 billion
23 dollars on an interstate highway system with
24 90-10 Federal monies with no complaint from
25 anybody, and yet there isn't any support,
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125
SENATOR NELSON
apparently, for 90-10 monies to help the
-municipalities tackle a problem that is much
3
more serious, in my judgment, than the
_ transportation problem in this country.
9
(Applause.)
6
Lake Michigan is a very large body
of water beset by immense, complex problems.
O
No single State acting alone can stem the
9
10
13
tide of pollution now sweeping the lake. Only
through a massive coordinated effort will we
12 be able to save this magnificent asset. This
conference gives us that opportunity, and I
.. hope and I am sure we will make the most of
15
Thank you very much.
(Applause.)
18 ASSISTANT SECRETARY EDWARDS: Thank
19 you, Senator Nelson, for a most interesting
20 and provocative statement.
2i At this time I should like to introduce
22 the single person, perhaps more than any other
23 individual, who is responsible for seeking this
24 conference. I had the opportunity this morning
25 "to discuss some of the problems with him and I
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126
SENATOR NELSON
was deeply impressed by the knowledge that
he has of the problems and the urgency and
dedication that he expresses in wanting to
g do something about preserving Lake Michigan.
. At this time the distinguished
o
ii Governor of Illinois, Otto Kerner.
a I (Applause.)
O ||
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
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127
1 GOVERNOR KERNER
2
3 STATEMENT BY
4 THE HONORABLE OTTO KEENER, GOVERNOR
5 STATE OF ILLINOIS
6
7 GOVERNOR KERNER; Thank you very much,
8 Mr. Secretary. Mayor Daley, Senator Nelson,
9 the many distinguished people here.
10 I do not want to confuse my opening
11 statement of welcome with the technical report.
12 I thought I at least ought to warm you up a
13 bit before we get to the details of the problems
14 that we are facing.
15 But this conference that has been
16 called here today is not the first of the
17 Great Lakes conferences on this subject. There
*8 is a continuing one that was called by the
19 Federal Government concerning Lake Erie. But
20 it is the first of such conferences where four
21 States involving the entire border of one of
22 our Great Lakes is meeting with the Federal
23 Government to solve water pollution problems
24 of a water resource common to and shared in
25 by all of these States.
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128
1 GOVERNOR KEENER
2 Attempts have teen made for the four
S States to meet and to discuss their mutual
4 problems, but it is not only logical but
5 mutually beneficial that the Federal Government
6 Join with the States in solving these problems,
7 because not only the States but the Federal
g Government share the responsibility for solving
9 these problems. And when we speak of Lake
10 Michigan, I think we must speak of all the
11 Great Lakes as a body.
12 For over 50 years the City of Chicago
13 has been defending its position of the with-
14 drawal of waters from Lake Michigan and the
15 discharge into another basin, and this has
16 proved to be the proper course in which we
17 must go. The States surrounding us must
18 also look at this, but then,of course, there
19 is a water level problem in which Illinois
20 as well as the other Great Lakes States have
21 been involved in the Great Lakes water basin.
22 There is sufficient water, but there must be
23 international understanding in order that
24 these waters can be used fruitfully by all
25 the States and provinces, if you wish, in
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129
1 GOVERNOR KEENER
2 the entire Great Lakes area. More water is
3 lost by evaporation, if you please, than
4 any other single cause in the Great Lakes
5 Basin. The induction of new and additional
6 waters into it and the reversal of flow, as
7 was done in Lake Superior, can add these
8 additional gallons of water that are needed
9 and may be the only way that certain of the
10 other States can solve this problem.
11 It is recognized that the basic
12 .^ssponsibility for solving the water pollution
13 problems in any State rests with that State.
14 We in Illinois, Senator Nelson, have recognized
15 that responsibility. I was able in this last
16 general session of the legislature to get their
17 approval for the placing on the ballot this
18 next November a billion dollar bond issue
19 for solving the problems of water and air
20 pollution and recreation. We in Illinois
21 sometimes lead the way and are penalized
22 because we are ahead of the pack, as we have
23 done in certain other areas, but we cannot wait
24 for the Federal Government. If this bond issue
25 is approved, municipalities, of course, will
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130
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
GOVERNOR KERNER
have the opportunity or using some of these
funds in order onat we can at the State level
assume our direct responsibility within the
boundaries of our own State.
But in the unique situation in which
we find ourselves today, there are areas of
responsibility in which the Federal Government
must share, these being in the area of not
only sources of pollution in Federal installa-
tions but in important interstate problems,
in some of which the States must have the
active participation and cooperation of the
Federal Government. These problems are so
basic to the health and the economic welfare of
the State that we can no longer look upon
cooperation as a mere expression of sentiment,
but in this instance it is an economic
necessity.
By virtue of its own record and the
facts, it was logical that the Governor of
Illinois request this conference, not only
in its activities of pollution control in
its intrastate streams but especially on Lake
Michigan.
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131
IGOVERNOR KEENER
May I add at this point, one of the
2
witnesses who will be here today, I think I
3
saw him as I came in, is the very able Attorney
General of the State of Illinois, William
5
Clark, who has had more prosecutions on water
6
pollution than any number of Attorney Generals
that I know of in this State, and successful
O
prosecutions. He has done a very admirable
9
10 Job'
But Illinois has set a pattern, and
, as this conference progresses you will hear
,_ additional definite plans unfold to assure
13
14 that we in Illinois have and are taking
15 definite steps to free our own waters and
16 that of Lake Michigan of those waters that
17 may be polluting it from within the State.
18 I have issued orders to all of the State
19 installations that they will clean up their
20 own front yards first before we look to industry
21 to do it. We must lead the way if we expect
22 them to follow, and this is municipal government
23 as well as State. But certainly this is a
24 common water resource that we have.
25 I am not at this time pointing a
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132
1 GOVERNOR KERNER
2 finger at any other State. That Is not the
purpose of this conference. But I am
pointing a finger at Illinois and saying
we are committed to rid Lake Michigan of
pollution, Illinois is, and we have moved
positively in this area.
These commitments have and will take
9 definite shape during this conference and
10 naturally the question arises: Are you, the
other States and the Federal Government, planning
12 to do likewise? While obviously the States
13 have a responsibility and a role, likewise so
14 does the Federal Government, and the other
15 States. The City of Chicago is leading the
way in setting a pattern for the control of
17 pollutional wastes from watercraft. It has
18 been covered by Senator Nelson, and while this
19 program, which will be amplified by our State
20 Water Pollution Control Agency, will protect
21 Illinois waters from such sources of pollution,
22 unless the Government agency takes the leading
23 role in controlling wastes from Interstate and
24 international watercraft, Illinois contri-
25 bution will be of little avail.
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133
1 GOVERNOR KERNER
2 In connection with the approval by the
3 Federal Government of the Illinois water criteria-
4 by the way, I don't think it has been publicly
6 announced, but the Secretary approved all of
6 the four-States water control criteria programs.
7 It was done, I believe, Monday morning, so that
8 all of the criteria plans have been approved,
9 in the event you didn't know about it.
10 But in connection with the approval
11 by the Federal Government of Illinois water
12 criteria and its implementation programs, which
13 include certain deadlines, Illinois will honor
14 these commitments and will proceed with all
15 speed to carry out the enforcement program as
16 submitted to and approved by the Secretary of
17 the Interior. This includes short-range and
18 long-range plans for the preservation and
19 development of the water resources of Lake
20 Michigan.
21
Illinois must have the support of the
22
other States and the Federal Government of the
23
position taken by the Governor and the legis-
24 lature of this State that will prohibit the
25 dumping of all materials into Lake Michigan
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GOVERNOR KERNER
other than inert materials such as sand, stone
3 and rocks, which will not contribute to the
4 pollution of this water resource. Illinois
5 and the other States must support Federal
legislation to regulate pollution by commercial
vessels in interstate commerce and the Governors
of the four States must direct their technical
9 personnel to instruct the appropriate State
10 agencies to develop uniform regulations, and
where necessary, legislation to provide for
the regulation of pollution from recreational
13 watercraft. Such regulations must assure
14 that no sewage shall be deposited in any manner
15 so as to reach the water of Lake Michigan except
10 through treatment facilities that have been
17 approved by the appropriate State agency.
18 And while the alewife problem, I
19 understand, does not necessarily involve
20 pollution, it is one to which the States and
21 the Federal Government must address themselves.
22 Since this problem involves most of the Great
23 Lakes, it is suggested that the Federal Govern-
24 ment, and possibly through the recently created
25 Great Lakes Basin Commission, address itself
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135
1 GOVERNOR KERNER
2 with some positive action to the problem of
3 the alewife.
4 The water resources of Lake Michigan
5 are not a today commodity nor a Governmental
6 commodity. Therefore, the success of this
7 action program to free Lake Michigan from
g pollution must be shared by every individual
9 organization, corporation and Governmental
10 agency* All have a direct responsibility for
11 preservation, abatement and control of pol-
12 lution. Organizations and individuals in
13 Illinois with responsible interest in the
14 protection and preservation of the waters of
15 Lake Michigan have responded to the invitation
16 to participate in this conference.
17 And may I say I, too, thank the
18 media of all the areas that are affected by
19 Lake Michigan for making the public aware
20 of this problem. I think they have done an
21 outstanding Job.
22 But certainly I assure you that we in
23 Illinois are aware of the program, of the
24 problem, and certainly we will do everything
25 within our power to see that Lake Michigan
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136
GOVERNOR KERNER
as well as the Internal waters of Illinois
z
are preserved.
s
(Applause.)
ASSISTANT SECRETARY EDWARDS: Thank
5
you, Governor
6
It occurs to me that this would be
7
an appropriate time to recess until 2 o'clock
8
this afternoon. But before we do that, I
9
should again like to thank Mayor Daley for
that fine statement and for his awareness of
the problems that we have before this conference
and for his dedication to solving them too
13
(Whereupon, at 12:10 p.m., a recess
was taken until 2:00 p.m. of the same day.)
16
17
18
19
20
21
22
23
24
25
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137
WILLIAM G. MILLIKEN
2 AFTERNOON SESSION
3 (2:00 p.m.)
4 ASSISTANT SECRETARY EDWARDS: Ladies
5 and gentlemen, be seated,please. The conference
- will now come to order.
o
7 I have the pleasure and privilege of
8 introducing to you the Honorable William Milliken,
Lieutenant Governor from the State of Michigan.
10 (Applause.)
11
12 STATEMENT BY THE HONORABLE
13 WILLIAM 0. MILLIKEN, LIEUTENANT.GOVERNOR
14 STATE OP MICHIGAN
15
16 LIEUTENANT GOVERNOR MILLIKEN: Assistant
Secretary Edwards, Governor Kerner, conferees at
this conference this afternoon, this week and
19 next week, ladies and gentlemen.
20 I am privileged to represent Governor
21 George Romney and the people of Michigan at this
22 very important conference which begins today.
23 Michigan, as many of you know, has
24 within her boundaries 4l percent of the entire
25 area of the Great Lakes. Four of the Great Lakes
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, 138
! WILLIAM G. MILLIKEN
2 touch our 3,000 miles of shoreline. We have
3 more than 11,000 Inland lakes and 36,000 miles
4 of rivers and streams.
5 Lake Michigan, the third largest of
6 the Great Lakes and the sixth largest fresh water
7 body in the world, has an area of 22,400 square
8 miles, of which more than 58 percent lies within
9 Michigan.
10 In short, Michigan has more to gain
11 from this valuable resource of fresh water than
12 any other State, and by the same token, Michigan
13 has more to lose if these waters are not pro-
14 tected from the destruction of pollution.
15 And I want to say at this time that
16 Michigan stands ready to do its share of the
17 Job that needs "to be done.
18 In accordance with the Water Quality
19 Law, passed by the Congress in 19^5* Michigan
20 met its commitment in adopting, prior to July 1
21 of 1967, as required by law, water quality
22 standards and plans for Implementation and
23 enforcement of these standards.
24 Secretary Udall this week has approved
25 our water quality standards subject to the
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139.
l WILLIAM G. MILLIKEN
2 resolution of certain questions which hopefully
3 can be cleared up within the next few days.
4 My purpose here today is to push for
6 full adoption of Michigan standards, to
6 indicate what already has been done in our
7 State to combat pollution, and to stress the
8 interdependency of Federal, State and local
9 action.
10 If we are to work effectively together,
n states must know what share of total costs will
12 be borne by the Federal Government; and local
13 units must know what share of State and local
w costs will be borne by the States.
15 Let me indicate this interdependency
16 by reviewing with you briefly the considerations
17 of the large-scale bonding proposal made earlier
lg this month to the Michigan legislature by
19 Governor Romney.
20 Our goal by 1980 is to remove the
21 threat to our inland lakes, our rivers and the
22 Great Lakes by construction of 210 new treatment
23 plants, by the construction of sewers for an
24 additional 3 1/2 million people, and by the
25 improvement of 126 existing sewage treatment
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140
l WILLIAM G. MILLIKEN
2 plants.
3 The costs of this program are estimated
4 by the Michigan Water Resources Commission at
6 $1,200,000,000, of which $568,000,000 is for
treatment and interceptor facilities and
6
$641,000,000 is for lateral sewers and storm-
water control. This is the program right now
. that we are asking the people of Michigan to
v
10 begin to undertake to halt pollution in Michigan
lakes and streams and in the Great Lakes.
12 Assuming a payment formula for the
t, treatment and interceptor facilities phase of
13
14 the program as proposed in Michigan House Bill
15 2646, whereby the State pays 25 percent, the
16 local community 25 percent, and the Federal
17 Government 50 percent, the respective costs
18 would be:
19 State $142,000,000;
20 Local $142,000,000;
21 The Federal Government $284,000,000;
22 For a total of $568,000,000.
23 Experience demonstrates, however, that
24 the Federal share of 50 percent cannot be guaran-
25 teed. For example, Congress authorized
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i4i
WILLIAM G. MILLIKEN
$18,000,000 as Michigan share of Federal water
pollution grants for fiscal 1968, but subsequent-
. ly reduced this authorization and appropriated
5 only $7,200,000.
With this experience in mind, we are
o
assuming that the Congress may not appropriate
a the $284,000,000 authorized for Michigan by 1972,
O
9 but may appropriate only $141,000,000.
Based upon this assumption, the State
.. share of construction costs would be $285,000,000
($142,000,000 State share plus prefunding of
,, $143,000,000 of the Federal share of $284,000,000).
13
14 A bond issue of $285,000,000 plus
15 Federal financing would pay 75 percent of the
cost of building new disposal plants and
17 improving existing plants to include secondary
18 treatment and laying interceptor sewers for all
of the municipalities, with the obligation of
20 financing from their own funds the remaining 25
2i percent of such costs and, in addition, paying
22 100 percent of the costs of lateral sewers.
23 Our problem is further complicated by
24 the fact that of the 191 municipalities required
25 to construct new plants or to improve existing
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142
1 WILLIAM G. MILLIKEN
2 plants, some 165 are communities with populations
3 under 500. For them, as well as for other cities
4 with a low property valuation, the problem of
5 financing their remaining share of the program
6 is unrealistic. Additional State assistance is
7 mandatory if the Job is to be done.
8 The Governor has, therefore, proposed
9 that a guarantee and loan fund of $50,000,000
10 be established so that this amount be added to
11 the proposed bond issue of $285,000,000, making
12 a. total water treatment bond issue of
13 $335,000,000. This is the bond issue which we
14 are now submitting before the current session
15 of the Michigan legislature.
16 A $335,000,000 bond issue repayable
17 within 30 years would require average annual
18 payments of 18.8 million dollars, and if Congress
19 should later appropriate larger sums than we
20 have estimated, the full amount of bonds, although
21 authorized, would not need to be issued.
22 Hopefully this will be the case, but
23 because we have no real assurance that the Federal
24 Government will meet its full 50 percent commit-
25 ment, we must, to be sure of attaining our goals
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143
I WILLIAM G. MILLIKEN
2 in water pollution control, place a dispro-
3 portionately heavy burden upon the State.
4 I recognize that these, admittedly,
5 are Michigan problems and further time should
5 not be devoted to them, except to indicate
7 that other States undoubtedly find themselves
g in a similar predicament in trying to base
9 major programs on a 50-25-25 percent basis in
10 which the 50 percent may be subject to con-
n siderable shrinkage.
12 Michigan's past record in combatting
13 water pollution, though admittedly inadequate,
14 has, I believe, been significant.
15 We have made substantial progress in
16 the past five years, progress made possible
17 by the sincere concern and the interest of
18 citizens, the responsibility of the legislature,
19 and the leadership of the executive office.
20 This progress includes:
21 Pollution control legislation which
22 has been greatly strengthened;
23 State appropriations to the Water
24 Resources Commission, which is the principal
25 water quality control agency in our State,
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1 WILLIAM G. MILLIKEN
2 and these appropriations have been increased
3 from $255,000 in fiscal year 1963 to $730,000
4 in fiscal year 1968;
5 The staff of our Michigan Water Resour-
6 ces Commission has doubled in that period of time;
7 A State grant fund has been created to
g assist local communities in construction of sewage
9 treatment facilities;
10 Tax incentives have been granted to
H industries for pollution control;
12 And we have adopted intrastate water
13 quality standards.
14
15 We have sent to this Conference highly
16 qualified Conferees from whom you will be hearing
17 in a good deal more detail on Monday and Tuesday
18 of next week on the scope of Federal, State and
19 local anti-pollution activities in Michigan.
20 As Lieutenant Governor of a penin-
21 sular State, which is known as the "Water
22 Wonderland," I agree completely with Secretary
23 Udall in his statement that "No resource in
24 the country is more important than the saving
25 '. of Lake Michigan."
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£
141
WILLIAM 6. MILL I KEN
I am greatly encouraged by this broad
0 attack on lake pollution which includes our
3
4 sister States of Illinois, Indiana, and Wisconsin
_ working in conjunction with Federal officials.
5
I would repeat that the relationship
6
between Federal, State and local government in
planning and in funding must be the best possible,
o
in which each unit keeps its commitments to the
10 other units. We cannot expect, for example,
that local government will raise more than 25
percent of the cost of any project so long as
.„ 50 percent Federal and 25 percent State are
AS
promised.
15 I would say in conclusion that as
16 already demonstrated by this conference called
17 by the Secretary this massive pollution problem
18 we face is not solely a local or a State problem;
it is multi-state and it is nationwide. That
20 is why I believe it is critically important for
21 Michigan and the other three States which are
22 meeting here today and for the Federal Government
23 to use all of the forces of law, all of the knowl-
24 edge that man possesses, to see that water, our
25 most valuable national resource, is used wisely
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! WILLIAM G. MILLION
2 and kept as pure and as clean as it is humanly
3 possible to do.
4 Thank you very much.
6 (Applause.)
6 ASSISTANT SECRETARY EDWARDS: Thank you,
7 Governor Milliken.
g At this time I should like to turn the
9 gavel over to the gentleman on my immediate right,
10 Mr. Murray Stein, who is the Assistant CbnrnLsaioner
H for Enforcement of the Federal Water Pollution
12 Control Administration. He will assist me in
13 chairing the remainder of the conference.
14
15 MURRAY STEIN, ASSISTANT COMMISSIONER
16 FOR ENFORCEMENT, FEDERAL WATER
17 POLLUTION CONTROL ADMINISTRATION
18 U. S. DEPARTMENT OF THE INTERIOR
19
20 MR. STEIN: Thank you, Secretary
21 Edwards.
22 I think before we continue, we might
23 have the panel introduce themselves, and I will
24 call on the States as I hope to call on them for
25 their presentations in alphabetical order.
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_ 147
! INTRODUCE-xwN OF CONFEREES
2 Illinois. Will the Illinois conferees
3 indicate who they are?
4 MR. KLASSEN: I am Clarence W. Klassen,
5 Technical Secretary of the Illinois Sanitary
6 Water Board, and have been officially designated
7 the conferee by that Board.
8 On my left is Dr. Franklin D. Yoder,
o the Director of the State Department of Public
i
10 Health in Illinois and Chairman of the Illinois
H Sanitary Water Board.
12 MR. STEIN: May we have Indiana?
13 MR. POOLE: I am Blucher Poole,
14 Technical Secretary of the Indiana Stream
15 Pollution Control Board, and I have been
w designated by Governor aranigin as one of the
17 Indiana conferees.
lg On my immediate left is John Mitchell,
19 who is Director of the Department of Natural
20 Resources of the State of Indiana, and he has
21 been designated by Governor Branigin as my co-
22 conferee.
23 On his left is Colonel Charles Sidle,
24 who is Chairman of the Indiana Stream Pollution
25 Control Board.
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148
1 INTRODUCTION OF CONFEREES
2 MR. STEIN: Michigan.
3 MR. OEMING: Mr. Chairman, I am
4 Loring F. Oeming, Executive Secretary of the
5 Michigan Water Resources Commission.
6 On my left is Mr. George F. Liddle,
7 the Chairman of the Michigan Water Resources
8 Commission and former City Manager of Muskegon,
9 Michigan, on Lake Michigan.
10 MR. STEIN: May we have Wisconsin.
n MR. HOLMER: Mr. Stein, the letter
12 of invitation to attend; this conference addressed
13 to the State of Wisconsin designated the Depart-
14 ment of Resources Development as the conferee
15 for Wisconsin. This did not take into account
16 the fact that Wisconsin has undergone a re-
17 organization in which the Department of Resources
18 Development has "become the Division of Resource
19 Development in a Department of Natural Resources.
20 The Chairman of the Natural Resources
21 Board is Mr. Russell G. Lynch, who has been
22 designated as Governor Knowles' personal repre-
23 sentative at this conference.
24 The Secretary of the Department of
25 Natural Resources, the second man to my left,
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149
INTRODUCTION OF CONFEREES
2 Lester P. Voigt,is also a representative at this
3 conference of the State of Wisconsin.
. I am Freeman Holmer, Administrator of
the Division of Resource Development in that
. Department.
o
MR. STEIN: Glad to welcome you,
g particularly Mr. Lynch, who is the personal
representative of the Governor. Most of the
people on the panel are old pros in the business
and we know them well. Russ Lynch has been an
12 old pro too, but this is the first time I have
13 seen him in an official capacity. Generally
he has been, as many of you well know, one of
15 the star reporters of the Milwaukee Journalt
and in the '20s and '30s he was the sports
editor, then he became the conservation editor,
18 and probably was the most distinguished conser-
19 vation editor in the United States.
20 Glad to have you, Mr. Lynch. I know
21 your remarks here probably are going to be as
22 perceptive as they were when you were on the
23 newspaper. I hope here not as acid.
24 (Laughter.)
25 The Federal Government.-- Mr. Poston.
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150
! INTRODUCTION OF CONFEREES
2 MR. POSTON: I am H. W. Poston,
3 Regional Director of the Federal Water Pollution
4 Control Administration, Department of Interior
5 for the Great Lakes Region.
c MR. STEIN: Thank you.
D
We will continue with the presentations,
g first of the statements of the Congressional and
9 gubernatorial staffs. In addition to that, we
10 will have a Federal presentation and presentations
u from the States in alphabetical order.
12 All those who want to be heard should
13 get in touch with their State agencies. We will
14 allow each State to manage its own time. It will
15 facilitate progress of the conference and help
16 you if you can register with your State as soon
17 as possible at the next recess if you want to
18 be heard, because the management of a conference
19 of this type sometimes gets a little complicated.
20 We can give you * better prognosis as to a time
21 schedule and how long it is going to last if you
22 will all get to your States and let them know
23 that you want to appear and if you can give
24 them a copy of your statement with the judgment
25 of how long you are going to take for your
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151
1 TELEGRAM PROM SENATOR PERCY
2 presentation.
3 Anyone other than the conferees should
4 come to the lectern and identify himself. It
5 will be most helpful, if you have copies of your
6 statements if you give them to the conferees
7 and most importantly to Mrs. Rankin, who is
g making a record of the conference. We have a
9 lot of business to do, and I think the critical
10 point is going to be how long Mrs. Rankin can
H stay with us taking down these notes. She
12 can stay with us much longer if you will give
13 her copies of your statements when you come up.
14 I would like to read a telegram
15 addressed to Secretary Stewart L. Udall.
"January 31, 1968
16 "l want to express my wholehearted
17 support for and encouragement of the Lake
18 Michigan Pollution Control Enforcement Conference.
10 I regret that the business of the Senate prevents
20 my being with you. However, I know I Join many
21 millions of citizens from the four-state area
22 in appreciation of your personal attention to
23 the pollution problems of Lake Michigan, and
24 for your awareness that no resource problem in
25 the country is more important than the saving of
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152
1 TELEGRAM PROM SENATOR PERCY
2 our lake. This Conference can perform a great
3 service in magnifying and accelerating efforts
4 by all levels of government, private industry
5 and the public at large to arrest the strangu-
6 lation of the lake It will take redoubling
7 of the present efforts of all concerned if the
g present deterioration of the lake is to be
9 arrested much less reversed. My best wishes
10 for a revealing and constructive Conference.
11 Charles H. Percy, United States Senator."
12 At this point we have the statement of
13 Senator Philip Hart of Michigan, and we would
14 like to call on a member of our Chicago staff,
15 Mr. Grover Cook, to read that statement.
16 Mr. Cook, will you read the statement.
17
18
19
20
21
22
23
24
25
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^_ 133
I STATEMENT OP SB1ATOR. HART
2
8 STATEMENT, OF THE HONORABLE PHILIP A. HART
4 THE UNITED STATES SENATE
5 STATE OP MICHIGAN
6
7 MR. COOK: This is a statement of
g Senator Philip A. Hart to the Lake Michigan
9 Enforcement Conference, Chicago, Illinois,
10 January 31, 1968.
11 "Mr. Secretary, I regret very much that
12 an obligation to be on the Senate floor today
13 prevents my being with you in person to testify
14 to my intense interest in the control of pollution
15 on our inland lakes and rivers as on our coastal
16 waters.
17 "You know that as far back as 1959 the
18 Senate set up a Select Committee on National Water
19 Resources. We submitted our report in January
20 of 1961 calling attention to the danger signals
21 with regard to the western Great Lakes. I was
22 one of four Senators who filed Supplemental Views
23 to that report, not disagreeing with i.ts findings
24 but urging a greater and more immediate effort
25
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. _ _ 15*
1 STATEMENT OF
2 to cope with the problem.
3 "That sense of urgency, expressed in
4 196l, is Just as right today:
5 "'The free water frontier has passed.
6 Additional water can no longer be taken heedlessly
7 or effortlessly. The United States is squeezed
g between the pincers of inadequate water develop-
9 ment and rapidly increasing water requirements,
10 while pollution makes more and more of our avail -
11 able water unfit for human or industrial uses.
12 "'Our task is to manage the basic supply
IS of water so that it will be usable at the places
14 and times it is needed, in a quality acceptable
15 for the desired uses. Technical studies and
16 expert Judgment indicate that this country has
17 the competence to deal with physical problems
18 of water supply and pollution. But we have not
19 yet put this competence fully to work. The
20 question is not whether we can do it--it is whether
21 we will do it. ' "
22 "In addition to the technical and
23 engineering research which we must vigorously
24 pursue, and in addition to the Federal-State-
25 local coordination which the problem clearly
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155
1 STATEMENT OF SENATOR HART
2 demands, there are two or three specific things
3 I believe we should do to help get on with this
4 life-and-death Job.
5 "l. First of all is the question of
$ money. More adequate sums of money must be
7 provided for the Federal contribution to con-
g struction of sewage treatment plants. Senator
9 Muskie, Senator Williams of New Jersey and I,
10 among others, wanted to battle this out on the
11 Senate floor this fall, but we were assured that
12 a request for supplemental funds could be made
13 if the demand warranted. Well, I would like the
14 news to travel far and wide that Michigan's
15 eligible applications for 1967-68 totaled $202
16 million, of which the Federal share at 30 percent
17 would be $60 million. What we are getting is
18 $7,3^4,500. This is truly a gap. I know that
19 the Michigan Water Resources Commission has been
20 working manfully to fulfill its obligations and
21 deserves all the help any of us can give it.
22 "2. The Midwest Federal Water Pollution
23 Laboratory, which we were successful in locating
24 in Ann Arbor and for which I finally secured
25 Federal funding back in 1964, is still on the
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156
1 STATEMENT OF SENATOR HART
2 drawing boards in the Department of Interior.
3 This is a disgraceful situation, Mr. Chairman,
4 and the fact that it sat for three years in the
5 Department of Health, Education and Welfare be-
6 fore it began sitting in Interior does not lessen
7 the indignation,
g "The holding of this conference here
9 today is proof that there is work to be done,
10 serious, complicated, costly work, to solve the
11 problems of Great Lakes pollution. Our problems
12 are not only test tube problems, they are social
13 and economic problems, administrative problems,
14 enforcement problems. What is needed is a com-
15 prehensive mobilization of our forces on a basin
16 basis, and clearly the creation of the Ann Arbor
17 Laboratory, adjacent to the great natural and
18 human resources of the area, would be an enor-
19 mous step forward in helping us put our best
20 brains to solving these problems.
21 "Mr. Secretary, I appreciate this
22 opportunity to express some of my views on this
23 pollution problem. I know all of us in Michigan
24 will cooperate to the fullest in its solution.
25 "Thank you very much."
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157
1 STATEMENT OF SENATOR HART
2 MR. STEIN: Thank you, Mr. Cook.
3 As senator Nelson, Senator Hart has
4 followed the water pollution control problems
5 in the Congress very closely and is very
6 interested in these cases and in the improvement
7 of our water resources.
8 Next we will call for statements which
9 have been submitted by Representatives Sidney
10 Yates and Daniel Ronan of Illinois, and Dr. Jacob
11 Bregman, also a native son of Illinois, will
12 read those statements.
13 I understand Congressman Rostenkowski
14 may have a statement and may have it here before
15 the conference is over. If he does, that will
16 be most welcome.
17 Dr» Bregman
18
19
20
21
22
23
24
25
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158
STATEMENT OP CONGRESSMAN YATES
STATEMENT OF THE HONORABLE SIDNEY R, YATES
IT. S. HOUSE OP REPRESENTATIVES, 9TH DISTRIC
STATE OP ILLINOIS
6
7 DRr BREGMAN: The following Is the
8 statement by Representative Yates ;
9 "I congratulate Governor Kerner for
his initiative in calling this Federal-State
conference for the purpose of accelerating our
12 efforts to clean up Lake Michigan. Saving the
13 lake from the curses of further pollution must
14 be viewed as one of the principal objectives of
15 the Federal Government as well as the Governments
16 of Illinois, Indiana, Michigan and Wisconsin.
17 The people of these States are determined that
lg Lake Michigan shall not deteriorate, decay and
19 develop dead spots as did Lake Erie.
20 MIt is imperative that we immediately
21 employ our best efforts and technology to reverse
22 the rising tide of pollution. All the citizens
23 of the bordering States, not Just the riparian
24 communities, suffer the effects of pollution In
25 the form of restricted recreation, the demise
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159
STATEMENT OP CONGRESSMAN YATES
of commercial and private fisheries, and the
destruction of aesthetic enjoyment. Although
efforts to reduce the amount of pollutants
dumped into the lake have increased, as yet
. they are inadequate. Evidence gathered since
7 1965 indicates a further decline rather than
an improvement in the quality of the water.
To preserve the lake for posterity, decisive
action must be taken today.
n "l specifically recommend that Congress
prohibit the Corps of Engineers from dumping
13 polluted dredging spoil into the lake and
14 strengthen existing legislation to penalize
15 those who release oil, sewage and other pollutants
from watercraft. I urge all municipalities,,
17 especially those north of Chicago, to review
18 the pernicious practice of dumping sewage either
19 into the lake or its tributaries, looking to a
20 discontinuation of the practice. Finally, I
21 encourage the Federal Water Pollution Control
22 Administration to adhere to its deadlines for
23 the abatement of industrial pollution."
24 And now the statement by Representative
25 Daniel J. Ronan.
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160
1 STATEMENT OF CONGRESSMAN ROHAN
2
3 STATEMENT OF THE HONORABLE DANIEL J. RONAH
4 U. S. HOUSE OF REPRESENTATIVES
5 STATE OF ILLINOIS
6
7 "Mr. Chairman, we must prevent
g L&ke Michigan from becoming another Lake
9 Erie. This^ conference, if it does its
10 job properly, will prevent Lake Michigan
11 from becoming another Lake Erie and will
12 prevent continued destruction of this most
13 valuable resource in the midwest. As I see
14 it, if Lake Michigan goes, so goes the economy
15 of this entire area,
16 "We have had enough of pollution--by
17 alewives, by municipal and industrial wastes,
18 and all the other wastes which are destroying
19 this marvelous resource on which we all depend,
20 some directly and some indirectly, for our
21 livelihood and for our pleasure.
22 "The American people, the people of
23 the Great Lakes Basin of Illinois, of Chicago,
24 and of the Sixth District ha/e had enough of
25 pollution. They have had enough of spilled oil,
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„ . — 161
I STATEMENT OP CONGRESSMAN RONAN
2 sewage and dead alewives littering their bathing
3 beaches and fouling their water intakes.
4 "l congratulate Governor Kerner,
5 Senator Nelson, and Secretary Udall, plus the
6 State and local officials, the members of private
7 organizations and the press who are taking
g particular interest in this conference.
9 "l believe that we can prevent Lake
10 Michigan from becoming another Lake Erie. The
11 Job will not be easy or short or cheap.
12 "As I see it, it will take sustained,
13 persistent and dedicated efforts of Federal,
14 State and local officials, as well as by the
15 press and members of private organizations,
16 if we are to prevent Lake Michigan from becoming
17 another Lake Erie.
18 "And we do not have much time, because
19 the problem has grown so great and the factors
20 contributing to the problem are accelerating so
21 rapidly that if we do not move fast and massively
22 enough, we may barely keep pace with the problem
23 or even fall behind.
24 "You have my support and I am sure
25 the support of the American people to do what
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162
1 STATEMENT OF CONGRESSMAN RONAN
2 needs to be done to prevent Lake Michigan from
3 becoming another Lake Erie."
4 (Applause.)
5 MR. STEIN: Thank you, Dr. Bregman.
I wonder if you would convey our thanks to
Representatives Yates and Ronan for those fine
statements.
9 We will now have the statement of
10 Governor Roger Branigin of Indiana, delivered
by John Mitchell.
12 Mr. Mitchell.
13
14
15
16
17
18
19
20
21
22
23
24
25
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: 163
1 STATEMENT OF GOVERNOR BRANIGIN
2
3 STATEMENT OF THE HONORABLE ROGER D. BRANIGIN
4 GOVERNOR, STATE OF INDIANA
5 PRESENTED BY
6 JOHN E. MITCHELL
7 INDIANA STREAM POLLUTION CONTROL BOARD
8 DEPARTMENT OF NATURAL RESOURCES
9
10 MR. MITCHELL: Assistant Secretary
11 Edwards and Chairman Stein, distinguished
12 conferees and ladies and gentlemen.
13 I present this statement on behalf
14 of Governor Roger D. Branigin of the State of
15 Indiana.
16 "The State of Indiana has only 45
17 miles of shoreline on Lake Michigan. Despite
18 our limited access on this great natural resource,
19 it constitutes a priceless asset to our State,
20 serving major sectors of our economy and well-
21 being in such diverse areas as municipal and
OO
Industrial water supply, navigation, recreation
23 and fisheries. Let me say then at the outset
24 that Indiana intends to so protect this resource
25
that its citizens may enjoy the benefits of all
-------
1 STATEMENT OF GOVERNOR BRANIGIN
2 legitimate water uses within the limitations
3 which nature and political boundaries impose
4 upon us.
5 "I might add that this is neither a
6 new policy nor is It one which applies only to
7 the Lake Michigan sector of our State. The
8 State of Indiana has long recognized the benefits
9 of clean water as demonstrated by our formal
10 Statewide pollution abatement program, exercised
11 through the Indiana Stream Pollution Control
l* Board, which is now in its 25th year. Through-
13 out that long period, and unheralded by the
14 spotlight of publicity, a solid record of
I5 progress has been achieved.
1* "This program was greatly strengthened
17 by our 196? General Assembly when a new clean
18 water program was approved. Funds were appro-
19 priated to provide State grants of 25 percent of
20 the cost of municipal sewage treatment facilities,
21 and laws were enacted which exempt industrial
22 ; facilities for water pollution control from
QQ j
0 personal property taxation and require the
24 certification of the operators of sewage and
25 industrial waste treatment plants. I believe
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165
1 STATEMENT OF GOVERNOR BRANIGIN
2 that Indiana is the first State in the Union to
3 require certification of industrial waste treat-
4 ment plant operators.
5 "Further, Indiana has adopted water
6 I quality criteria and a specific program for
7 their implementation, not only for Lake Michigan
8 and all of the waters flowing into it, but for
9 all waters in Indiana, both interstate and
10 intrastate. The Lake Michigan criteria are
11 identical to those adopted by the conferees in
12 the enforcement case covering a small portion
13 of the south end of the lake which was begun
14 in 1965. The criteria for the entire State and
15 the plans of implementation were approved by the
16 Secretary of the Interior in July 196?. We
17 were honored by being one of the first States —
18 if not, in fact, the first State--to have its
19 criteria and plans approved. Secretary Udall
20 termed this 'a superb Job1
21 "I assume the other States bordering
22 upon Lake Michigan have adopted similar programs.
23 Through our several State programs the problems
24 amenable to control at the individual State
25 levels will be solved.
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166
|STATEMENT OF GOVERNOR BRANIGIN
W0n this basis it seems to me that the
2
remaining area of concern, and the area to which
3
the main thrust of this conference should be
directed, is the development of a uniform approach
5
J to the control of existing and future pollution
6
of Lake Michigan.
7
"There are a number of problems which
O
can be solved only by such concerted action.
These include the control of algae, oil. pol-
10
lution from boats, alewives, and the disposal
of dredged materials. The Indiana boating law
12
prohibits the discharge of human waste from
13
boats on all Indiana waters except Lake Michigan.
14
,_ i I wi.ll ask the 1969 General Assembly to correct
15
,. this deficiency. It does seem to me, however,
16
17 that the control of commercial vessels can be
lg more appropriately handled at the Federal level.
19 "l also favor enactment of Federal
20 legislation strengthening the current powers of
21 the Department of Interior on the control of oil
22 and strong Federal leadership on the alewife
23 problem. On dredged materials I support the
24 position that organic material and inorganic
25 material of a harmful nature should not be
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167
t ISTATEMENT OF GOVERNOR BRANIGIN
2 disposed of in the lake. We must recognize it
0 takes time to work out acceptable methods and
3
, all parties concerned should work with the Corps
. of Engineers to develop these methods with the
least practicable delay.
D
"in addition to these current problems,
it is my view that many potential future problems
o
9 of pollution can be avoided or minimized through
10 a program of coordinated and comprehensive
jj planning for the development of the water re-
12 sources of the Great Lakes Basin. The newly-
13 created Great Lakes Basin Commission, of which
14 all the Great Lakes States and involved Depart-
15 ments of the Federal Government are members,
16 appears to be the proper vehicle for such co-
17 ordination.
18 "In closing, I pledge the cooperation
!9 of the State of Indiana in carrying out any
20 sound program for the control of present and
21 future pollution of Lake Michigan in order
22 that future generations can enjoy to the fullest
23 its priceless assets."
24 (Applause.)
25 MR. STEIN: We will now hear the
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168
! R. G. LYNCH
2 statement of Governor Warren Knowles, presented
3 by Mr. Russell Lynch.
4 Mr. Lynch.
5
6 STATEMENT BY R. G. LYNCH
7 CHAIRMAN, NATURAL RESOURCES BOARD
8 STATE OP WISCONSIN
9
10 MR. LYNCH: Mr. Secretary, who Is gone,
n and Mr. Enforcement Chief, who Is here, conferees
12 and others In this outstanding gathering.
13 I do not deliver a statement written
14 i by the Governor of Wisconsin. I represent him.
15 The statement is mine and he is in accord with
1$ it, I am quite sure. My remarks will be short
17 because I would like to see this conference
lg get down to the business for which it was called.
19 We from Wisconsin are deeply concerned
20 about pollution and we have come to this con-
21 ference in a spirit of complete cooperation and
22 look to it for constructive action to protect
23 and restore Lake Michigan. Our Governor, Warren
24 Knowles, held conferences not long ago on pol-
25 lution problems of the Milwaukee and Green Bay
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169
1 R. G. LYNCH
2 areas in which the Federal people participated.
3 His concern is very real about this matter.
4 As for myself, having spent years
5 publicizing pollution problems through the
6 Milwaukee Journal, I am personally very pleased
7 at the broad scope of this conference. I compli-
8 ment Secretary Udall and personnel of the Water
9 Pollution Control Administration for making it
10 much more than an enforcement conference.
11 Mr. Udall's recent approval of the
12 four States water quality standards and plans
13 for attaining them has helped to create a good
14 atmosphere for this meeting. Wisconsin
15 standards are strong and forward-looking. I
16 helped draft them last year as a member of our
17 State Resource Development Board. Our new
18 Natural Resources Board is taking over the
19 task of that Board as well as the work of
other agencies.
21
After three decades of substantial
22
efforts to cope with water pollution, Wisconsin
23
intensified its attack two years ago when the
24
legislature provided more money and manpower
25
and stronger laws and ordered a merger of
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170
R. G. LYNCH
resource agencies, which will be completed by
July 1 of this year,
Our Department also administers new
g laws to control air pollution and solid waste
. disposal, as well as older laws to control
nearly every activity of man which affects
lakes and streams.
Thus we are equipped to cooperate
vigorously in carrying out proposals of this
conference.
12 As a long-time reporter in this
13 field, I know something of the scope and
14 urgency of Lake Michigan problems. I would
15 say here, as in all areas of pollution, we are
16 20 years late in getting at what we should do.
17 We should have begun immediately after World
18 War II, which not only fcatered a technological
explosion but had delayed the construction of
20 sewers and sewage treatment plants. NoT we
21 need to get at it with speed because we have
22 been falling behind all this time.
23 This conference must not merely discuss
24 and recommend. As a reporter and as a participant
25 I have been to quite a few conferences out of
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171
1 R. G. LYUCH
2 which very little came, I would HKe to see
3 something definite come out of this one, and I
4 think it will. We can't merely discuss and
5 recommend here. This conference should produce
e programs and estimates of their cost, of the
7 total cost.
g Senator Nelson, a progressive in his
9 fight against pollution, is a conservative when
10 he puts a $650,000,000 price tag on this Basin
11 cleanup. The cost of eliminating storrowater
12 from sanitary sewers in the Milwaukee area
13 alone may run to $300,000,000, and a real
14 cleanup of the Pox River and Green Bay also
15 could be enormously expensive.
16 Looking over the Federal recommendations
17 which have been printed for this conference, and
18 I agree with them fully, and contemplating the
19 construction and the continuing research and
20 development involved, I think that overall
21 we are talking about a billion dollar program
22 and in time it could run perhaps a great deal
23 more.
24 Whatever the cost, the lake must
25 be saved. This conference not only must be
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172
1 R. G. LYNCH
2 realistic about financing, it should admonish
3 Congress to be realistic. We need better Judg-
4 ment in our national Capitol as to what is
5 essential and what is not.
6 So long as sky rockets to the moon
7 and supersonic airplanes for two percent of our
8 people are put ahead of saving the environment
9 for all of our people, I see little hope for
10 the kind of Lake Michigan program we need or
ll for any other effective environmental protection
12 efforts. The States, local governments and
13 industry cannot do the job. Massive Federal
14 aid is required.
15 You have heard other speakers talk
16 about the difference between what has been
17 authorized by the Congress and what has been
18 appropriated. The Congress when it requires
19 States to put up money for aid to communities
20 as a condition for getting Federal aid for
21 those communities is guilty, in my opinion,
22 of something ror which private citizens get
23 arrested and put in jail, and that is called
24 a pigeon drop. I hope you are familiar with
25 it.
-------
iza.
1 R. G. LYNCH
2 (Laughter.)
3 I wish this conference success, and
4 on behalf of Governor Knowles and of our Board
5 I pledge Wisconsin's full cooperation in
6 carrying out the programs that I hope will
7 result from it.
8 Thank you.
9 (Applause.)
10 MR. STEIN: Thank you, Mr. Lynch.
11 Now wfe will go to Illinois, and I
12 believe we will have the Health Office, Dr.
13 Yoder.
14
15
16
17
18
19
20
21
22
23
24
25
-------
t FRANKLIN D. YODER
2
3 "A PUBLIC HEALTH PHYSICIAN
4 LOOKS AT LAKE MICHIGAN"
g FRANKLIN D. YODER, M.D.
. DIRECTOR, ILLINOIS DEPARTMENT OF HEALTH
o
7
g DR. YODER: Mr. Chairman, Mr. Secretary,
g Mr. Poston, conferees of the four-state con-
10 ference, ladies and gentlemen.
n The title of my presentation is "A
12 Public Health Physician Looks at Lake Michigan."
13 Physicians often tend to think of
14 a patient in terms of the parts or systems
15 which comprise the bodily processes. Today I
16 want to discuss another concept of body health,
17 not that of a human body, but the health of
18 the relatively young body of fresh water we
IQ call Lake Michigan.
20 This body has many health similarities
21 to its human counterpart. Both are living
22 things, composed of organic and inorganic
23 chemicals plus a variety of living cells and
t
24 attendant organisms, some beneficial and some
25 pathogenic or capable of producing disease.
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175
1 FRANKLIN D. YODER
2 In the human body, the interdependence
3 of bodily processes and organisms is called
4 physiology. In water, this relationship be-
5 tween organisms and their surroundings is
6 called ecology, a word from the Greek meaning
7 house, plus the "ology," which means treatise
8 or study of. Thus ecology, as we have come
9 to know it, has many facets, all pertinent
10 to this discussion of today's patient, Lake
ll Michigan,
12 The comparison between the human body
13 and a body of water can be carried a step farther.
14 They both experience the aging process and both
15 are constantly attempting to regenerate their
16 deteriorating bodily func-tions to maintain a
17 good state of health.
18 Throughout these discussions our
19 primary purpose should be to halt and reverse
20 an aging process that has not only been in
21 progress for centuries but has now reached a
22 point which threatens the- very life of the body
23 in which it exists.
24 Geologically, the Great Lakes are
25 relatively newcomers when measured against the total
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176
I FRANKLIN D. YODER
2 panorama of earth's evolution. We are told that
3 these great bodies of water were formed between
4 7,000 and 32,000 years ago. Lake Erie reached
5 its present form about 10,000 years ago. Lake
6 Michigan—and I don't believe anybody has yet
7 emphasized that it is the only one of the Great
g Lakes lying entirely with the boundaries of
9 the United States--reached its present development
10 only two or three thousand years ago.
n Contrary to a popular belief, man has
12 occupied the Lake Michigan Basin for most of
13 the lake's life. For centuries, man and possibly
14 nature have increasingly abused this body of
15 water.
16 Thus, while Lake Michigan is still
17 young in a geological sense, healthwise it is
18 old beyond its years. When the human body is
10 abused or misused, aging is accelerated. This
20 same response occurs in a body of water and the
21 processes of eutrophication result.
22 Science has and is constantly studying
23 and applying new techniques to prevent, protect
24 and lengthen human life by slowing the effects
25 of aging. It is not hard to imagine the loud
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177
1 FRANKLIN D. YODER
2 and justifiable criticisms which would be heard
3 if it became known the medical profession had
4 a technique for accomplishing this but was
5 withholding it.
6 Yet while recognizing there is a need
7 for new and improved techniques and methods, for
g example, in the removal of nutrients and sub-
9 stances contributing to the aging, we presently
10 have techniques and methods to control many of
11 the processes involved but we are not utilizing
12 them to protect the life of our lake.
13 Health is a principal component in
14 the progress of any society. Translating its
15 significance to our "patient," we muse recognise
16 Lake Michigan is vital to the proper social
17 functioning of every facet of our life, per-
18 sonal, community and industrial.
19 We can classify all except one of
20 the natural resources that are available and
21 can be utilized to build the economy of this j
|
22 Lake Michigan Basin in a number of different
23 ways. That one all-important exception is
I
24 water.
25 As a resource, water is a requirement
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178
1 FRANKLIN D. YODER
2 that is so basic to our existence and economy
3 that the use of all other resources are predi-
4 cated upon a plentiful supply of satisfactory
5 water. In its absence, other resources become
6 almost valueless.
7 The present is often said to reflect
g the past, and the reflected image of Lake
9 Michigan is not one of which we can be proud.
10 The future will reflect the present or, more
11 importantly, what is done as a result of this
12 enforcement conference.
13 If we consider ourselves community
14 physicians with Lake Michigan as our "patient,"
15 the prognosis is clear.
16 We can prolong the useful life of
17 this comparatively young body of water or
18 hasten its death by further procrastination or
19 listening to economic reasons why the vital
20 functions of the patient should be allowed
21 to stop,
22 Health and money are not interchange-
23 able commodities in the human body. The same
24 axiom applies to the health of a body of water
25 vital to our existence.
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179
l FRANKLIN D. YODER
2 There are two requisites for doing
a great and important work. You must have a
definite plan and a specific time for accom-
plishing it. The time for Lake Michigan is
already limited. Superficial solutions will
7 not suffice.
8 On the positive side, we have certain
know-hows. Patterns for administration can be
resolved. We can likewise, even amidst
competition for the use of Lake Michigan,
pursue a sound economical and practical approach
13 to assuring that such a resource remains
14 suitable for our multi-purpose uses.
15 With characteristic human near-
sightedness, we often look at Lake Michigan
as a "today commodity," whereas we must take
18 a farsighted look through the upper part of
19 our aquatic bifocals to consider what measures
20 will preserve this important asset.
21 There is no cheap or painless way to
22 control or manage the quality of the waters
23 of Lake Michigan. Many of its water quality
24 problems are already old. It is our awareness
25 of them that is new, an awakening awareness
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180
1 FRANKLIN D. YODER
2 of the need to assure water quality satisfactory
3 for domestic and industrial demand.
4 Therefore, let us resolve, as part of
5 the society which lives around Lake Michigan,
6 to take constructive action to save the life
7 of this "patient," not only for our own sakes,
g but for the sake of our entire Nation.
9 Thank you.
10 (Applause.)
11 MR. STEIN: During this conference,
12 and we have said this before, but this is one
13 of the rare privileges of a conference, we have
14 a meeting of the President's Water Pollution
15 Control Advisory Board who are in attendance
16 at the conference, and I believe I saw some of
17 the members here. Are they still here, the
18 Board members?
19 They may be scattered around. We
20 welcome the Advisory Board to these confer^-
21 ences.
22 We now have a statement of Attorney
23 General Frank Kelley of Michigan, which will
24 be given to us by Assistant Attorney General
25 Nicholas V. Olds.
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l STATEMENT OP PRANK J. KELLEY
2 While you are coming up here, Russ
3 Lynch said we should do something. You know,
4 I read the other day about some oldsters putting
5 Goose aoslin and Kiki Cuyler in the Baseball
6 Hall of Fame. That kind of startled me, that
7 "oldsters," because those were the fellows
8 who were playing baseball when I was a youngster
9 and you were writing about them. So I guess
10 if we don't get this lake cleaned up and have
U an action, program, maybe we will have someone
12 doing it for us.
13 Mr. Olds has worked in water resources
14 and in the general field of the legal aspects
15 of water resources as long as any of us and is
16 one of the distinguished legal experts in this
17 field.
18 Mr. Olds.
19 STATEMENT OF THE HONORABLE PRANK J. KELLEY
20 ATTORNEY GENERAL, STATE OP MICHIGAN
21 PRESENTED BY
22 THE HONORABLE NICHOLAS V. OLDS, ASST. ATTORNEY GENERAL
23 MR. OLDS: Thank you, Mr. Stein.
24 The paper presented here, which I
25 shall present on behalf of Attorney General
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1 STATEMENT OF FRANK J. KELLEY
2 KelLey, of course is addressed to Secretary Udall,
3 because we were hoping that he would be here.
4 Mr. Kelley regrets he can't be here today be-
5 cause he is in Washington presiding over the
6 meeting of the National Association of Attorney
7 Generals as its president.
g "As Attorney General of the State of
9 Michigan, I am directed by law to enforce the
10 water pollution control statutes of the State
11 of Michigan, according to the decisions of
12 our Supreme Court, the Attorney General of the
13 State of Michigan is vested with common law
14 powers to abate public nuisances, and this power
15 has been used at various times by the Attorney
16 General to eliminate water pollution situations
17 prior to the enactment of our present water
18 resources act in 1929.
19 "Because of the importance of water
20 pollution law enforcement, I sponsored a con-
21 ference on this subject on November 2, 19^5, in
22 Lansing, Michigan. A copy of the proceedings
23 of that conference is appended and it can be
24 observed that it was attended by State and local
25 officials, by private citizens and industry, and
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1 STATEMENT OP PRANK J. KELLEY
2 also by members of the Federal Water Pollution
3 Control Administration."
4 And I believe, Mr. Stein, you were one of
5 the notable persons that attended that conference.
6 (Which said document, entitled "Water
7 Pollution Law Enforcement Conference," follows
g this statement:, commencing on.page 205.)
9
"CONSTITUTION AND WATER POLLUTION CONTROL LAWS
10
11 "The people of this State, in adopting
U a new Constitution in 1963, spoke in no uncertain
13 terms on their determination to protect the waters
14 of our State from destruction and corruption,
15 "Section 52 of Article IV of the Consti-
16 tutlon of 1963 states:"
17 And this, I think, is a rather unusual
18 thing to occur in a State Constitution, and this
19 is what it says:
20 "'The conservation and development
21 of the natural resources of the State
22 are hereby declared to be of paramount
23 public concern in the interest of the
24 health, safety and general welfare of
25 the people. The legislature shall
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1 STATEMENT OP FRANK J. KELLEY
2 provide for the protection of the
3 air, water and other natural re-
4 sources of the State from pollution,
5 impairment and destruction.'"
6 "It can be seen from this provision that
7 the people imposed upon the legislature the solemn
8 duty to 'provide for the protection of the * * *,
9 water * * * of the State from pollution, impair-
10 ment and destruction.1 Responding to this command
11 of the people, the Michigan legislature of 19^5
12 amended our basic water pollution control statute,
13 namely, Act 245, P.A. 1929, and thereby strength-
14 ened the arm and power of the Water Resources
15 Commission to abate and control pollution of the
16 waters of the State. Section 6 (a) of this act
17 defines what constitutes unlawful pollution in
18 [ the following language:
19 "*It shall be unlawful for any person
20 directly or indirectly to discharge
21 into the waters of the State any sub-
22 stance which is or may become injurious
23 to the public health, safety or welfare;
24 or Which is or may become injurious to
25 domestic, commercial, industrial,
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185
STATEMENT OP FRANK J. KEL.LEY
0 agricultural, recreational or other
4
„ uses which are being or may be made
o
of such waters; or which is or may
_ become injurious to the value or
. utility of riparian lands; or which
D
_ is or may become injurious to live-
0 stock, wild animals, birds, fish,
o
aquatic life or plants or the growth
or propagation thereof be prevented
or injuriously affected; or whereby
12 the value of fish and game is or may
be destroyed or impaired.1"
This is a very broad definition in our
15 State of what constitutes unlawful pollution.
16 "in order to facilitate the control and
17 banning of the discharge of raw sewage, this act
18 was amended by the addition of Section 6(b), which
19 provides:
20 "'The discharge of any raw sewage of
21 human origin, directly or indirectly
22 into any of the waters of the State
23 shall be considered prima facie evi-
24 dence of the violation of section
25 6(a) of this act unless said discharge
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186
1 STATEMENT OF FRANK J. KELLEY
2 shall have been permitted "by an
3 order, rule or regulation of the
4 commission. Any city, village or
5 township which permits, allows or
6 suffers the discharge of such raw
7 sewage of human origin into any
8 of the waters of the State by any
9 of its inhabitants or persons
10 occupying lands from which said
ll raw sewage originates, shall be
12 subject only to the remedies pro-
13 vided for in section 7 of this act.1"
l* The purpose of this section was to make
15 it a prlma facie act of unlawfulness to discharge
16 raw sewage into any of the waters of the State.
" "But, beyond this, the legislature of
18 1965 desired to make it more positive that the
19 Attorney General shouid have his time-honored
20 common law powers to abate a public nuisance and
21 thus provided in Section 6(d) as follows:
22 "'Any violation of any provision of
23 section 6 shall be prlma facie evi-
24 dence of the existence of a public
25 nuisance and in addition to the
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18?
j STATEMENT OP FRANK J. KELLEY
2 remedies provided for in this act
3 may be abated according to law in
. an action brought by the attorney
_ general in a court of competent
jurisdiction.1"
o
"indeed, in recent days the Attorney
General has made use of this power in several
O
g suits brought against polluters who could not
10 be stopped in their continuing acts of pollution
n by the Water Resources Commission. The 1965
12 amendment to this act strengthened the arm of
13 enforcement by declaring in Section 10 that a
14 violator (municipalities excepted) of the pro-
15 visions of Section 6 shall be 'guilty of a mis-
16 demeanor and upon conviction be punished by a
17 fine of not less than $500 and in the discretion
18 of the court, it may impose an additional fine
19 of not less than $500 per day for any number of
20 days during which such violation occurred.1
21 "Such a fine was recently imposed upon
22 and collected from a large industry in our State.
23 But to make certain that the polluter would be
24 made to pay damages for injuries to the natural
25 resources of the State, the 19^5 amendment added
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188
1 STATEMENT OP PRANK J. KELLEY
2 the following sentence to Section 10:
3 "'In addition to the minimum fine
4 herein specified, the attorney
5 general, at the request of the
6 department of conservation, is
7 authorized to file a suit in any
court of competent jurisdiction
9 to recover the full value of the
10 injuries done to the natural re-
sources of the State by such vio-
12 lation.1"
13 "The Attorney General of the State of
14 Michigan has for many years filed suits for the
15 collection of damages caused to the fish and
wildlife of the State "by identified discharge
17 of pollutional substances into various waters
18 of the State. The purpose of this language was
19 to reaffirm and make certain the exercise of
20 this authority.
21 MAGNITUDE OF
22
23 "This conference deals primarily with
24 the pollution situation and problem of Lake
25 Michigan. Michigan touches four of the five
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189
1 STATEMENT OP PRANK J. KELLEY
2 Great Lakes. She has more than 3,000 miles of
3 Great Lakes shoreline. The Lake Michigan shore-
4 line extends from Menomlnee to the Straits of
5 Macklnac In the Upper Peninsula, and from the
6 Straits of Macklnac In the Lower Peninsula down
7 to the southern boundary, a distance of 1,022
8 miles. It Is also Interesting to point out that
9 the entire State of Michigan lies within the
10 Great Lakes Basin and consequently all of its
ll rivers flow into one of the Great Lakes. I
12 make this observation in order to point out the
13 tremendous responsibility which my State has in
14 preventing and controlling the pollution of the
15 Great Lakes and the tremendous task which this
16 entails. But since the waters of the Great
17 Lakes are one of the richest assets which my
18 State has, it should not and will not shrink
19 from meeting its responsibility.
20 "MICHIGAN'S POLLUTION CONTROL PROGRAM
21 "The water pollution control program
22 which the State of Michigan has pursued and will
23 continue to plan and enforce in the future will
24 be delineated to you in great detail by the
25 excellent staff of the Water Resources Commission
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190
1 STATEMENT OP FRANK J. KELLEY
2 and the Department of Public Health. I believe
3 you will find from a review of the record that
4 these two public agencies have worked indefa-
5 tigably and diligently in performing this
6 stupendous task. Granting that much more needs
7 to be done, may I assure you that this great
g State will not be found wanting in the performance
9 of this task.
10
11 ^N j. AKJ MICHIGAN POLLUTION^ROBLEM
12 "On November 3, 19&7, at the request
13 of the Honorable William G. Clark, Attorney
14 General of the State of Illinois, Attorney
15 General LaFollette of Wisconsin, Attorney General
16 Dillon of Indiana, and I met in the offices of
17 General Clark in Chicago for the purpose of
18 conferring about the Lake Michigan pollution
19 problem. Inasmuch as the Attorneys General of
20 these States are ultimately responsible for the
21 enforcement of the water pollution control laws
22 of their respective States, it was believed
23 that they ought to agree upon a cooperative
24 program for the enforcement of such laws in
25 these States. The result of that meeting was
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191
1 STATEMENT OF FRANK J. KELLEY
2 verbalized in a statement issued at that time,
3 a copy of which is attached."
4 (A copy of the proceedings referred
6 to follows this statement, commencing on page 360.
6 "You will observe, Mr. Secretary, that
7 the Attorneys General of each State agreed that
8 they would secure from their respective States
9 a list of all polluters of Lake Michigan, that
lO these lists would be exchanged so that each
H Attorney General would know who were the pol-
12 luters that needed to be identified along the
13 entire shore of Lake Michigan for the purpose
14 of taking such steps as may be necessary, either
15 singly or in concert, against such identified
16 polluters.
17 "inasmuch as this conference was called
18 by you shortly after this meeting, the information
19 which I would have received from our State
20 agencies has been compiled for the purpose of
21 this conference and will form the basis for
22 further action to be taken not only by me, but
23 by the Attorneys General of the other three
24 States. I assure you that there will be further
25 Joint activities by the four Attorneys General
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192
1 STATEMENT OP PRANK J. KELLEY
2 of these States, and that it is the intention of
3 all of us to prosecute vigorously all legitimate
4 cases against polluters who refuse to comply
5 with the water pollution laws of these States.
6
7
g "in Michigan our two great universities,
9 the University of Michigan and Michigan State
10 University, have for years been engaged in re-
11 search and scientific study of the waters of the
12 Great Lakes and their tributary streams. The
13 University of Michigan has conducted a far-
14 flung and intensive research program on the
15 Great Lakes through its Great Lakes Research
16 Division, Institute of S-cience and Technology,
17 headed by Dr. David C. Chandler. Just recently,
18 the Great Lakes Research Division of this Uni-
19 versity has published its Special Report No. 30
20 entitled 'Studies on the Environment and
21 Eutrophication of Lake Michigan.1 I am filing
22 a copy of this volume with you and your staff
23 and additional copies may be secured from Dr.
24 Chandler. In fact, Dr. Chandler stands ready
25 to supply you with all the documents and papers
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193
! STATEMENT OP FRANK J. KELLEY
2 they have prepared from their research work,and
3 to be available for consultation at all times."
4 I am happy to announce that Dr. Chandler
6 is here in person at this Conference.
6 MR. STEIN: Mr. Olds, do you want that
7 document of Dr. Chandler's as an exhibit?
8 MR. OLDS: Yes. Here it is.
9 MR. STEIN: That will be designated as
10 an exhibit and will be available at the Washington
n office of the Department of Interior and the
12 Regional Office in Chicago for inspection during
13 business hours.
14 (Which said document, entitled "Studies
on the Environment and Eutrophl cation of Lake Michij-
15 gan," is marked as Conference Exhibit No. 1, 1/31/63,
and is on file at the Federal Water Pollution Con-
16 trol Administration office in Washington, D.C.,
with a copy on file at the regional office of the
17 FWPCA in Chicago, Illinois.)
18 MR. OLDS: Thank you, Mr. Stein.
19 "Also, recently on December 4, 1967,
20 Dr. Chandler as Director of the Great Lakes
21 Research Division of the University of Michigan
22 presented a 'Statement Before The Chicago Field
23 Hearings by Panels on Basic Science and Environ-
24 mental Problems of the Commission on Marine
25 Science, Engineering and Resources' dealing
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STATEMENT OF FRANK J. KELLEY
2 with 'pressing problems of pollution abatement
3 and water resource management of the Great Lakes.1
Dr. Chandler's division has also prepared and
supplied me with a document entitled 'Monitoring
of Great Lakes Waters' in which he proposes a
general program of monitoring this tremendously
large body of fresh water so that determination
could be made of what occurs from time to time.
10 Copies of both of these documents are attached
to this paper.n
12 Copies of those are attached to this
13 paper.
14 MR. STEIN: Those documents will be
15 entered into the record as if read.
(Copies of the documents referred to
follow this statement, commencing on page 361.)
18 "A mere study of these publications
19 and documents would indicate the complexity of
20 the waters of the Great Lakes, how little is
21 known about their behavior and how much more
22 needs to be found out. It would seem that if
23 we are going to approach intelligently the
24 problem of controlling the pollution of Lake
25 Michigan, the research program and activities
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195
1 STATEMENT OF FRANK J. KELLEY
2 of this division of the University of Michigan
3 not only should be maintained but, in fact,
4 should be stepped up. I am alarmed by informa-
6 tion given me by Dr. Chandler that his research
6 program is in danger of being seriously reduced
7 by the present threat of Federal cutback of funds.
8 If this occurs, he will not be able to continue
9 this program at the present level, and he will
10 be required to reduce his staff and efforts.
11 "At a time when we are concerned and
12 alarmed about the pollution of Lake Michigan,
13 this would be highly unfortunate and thus I
14 urge you to use your good offices to the end
15 that the funds that are needed for this research
16 program will not be reduced but, hopefully,
17 augmented.
18 " 2EIAT_LAKE^ Jf ATER_PO^UTJ^ON_LABORATORY
19 "During fiscal 1964 the Congress of
20 the United States not only authorized but ap-
21 propriated funds for the construction of a
22 water pollution control laboratory to be built
23 in Ann Arbor, Michigan. According to information
24 I have received from Senator Philip A. Hart, the
25 construction of this laboratory was to begin
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196
1
STATEMENT OF PRANK J. KELLEY
during the fall of 1964—in fact, the site had
already been selected."
And I am informed that the site
actually was donated by the University of
Michigan.
"This much needed research facility,
to be known as the Midwest Federal Water Pol-
lution Control Laboratory' was to do research
for all the Great Lakes Region, with respect to
the pollution wastes that were being discharged
into the waters of the Great Lakes and what
13 should be done to render them either innocuous
or at least less injurious.
15 "The reason why Ann Arbor, Michigan^
was selected for the site of this laboratory
was so that the basic data collected by the
18 Great Lakes Research Institute of the University
19 of Michigan and other universities in the Great
20 Lakes Region could be utilized by the laboratory
2i in its research program. Scientific information
22 and data are of little value unless they are
23 converted into useful purposes. It was hoped
24 that this facility would find the answers to
25 the many complex problems that confront us in
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197
1 STATEMENT OF FRANK J. KELLEY
2 our efforts to free the waters of the Great Lakes
3 from the burden of pollution now carried by them.
4 "We hope, Mr. Secretary, that action
5 will be taken immediately to begin the construc-
6 tion of this most important research facility on
7 the site which has already been selected at Ann
8 Arbor, Michigan."
9 And I might say parenthetically here
10 that we are certainly heartened by the letter
11 read, received from Senator Hart, on this matter.
12 "Research Program of Michigan State
13 University on Tributary Rivers.
14 "Michigan State University has also
I5 engaged in research programs involving the waters
16 of the State of Michigan. Inasmuch as the
M University of Michigan developed and had been
18 carrying on an extensive research program on the
19 Great Lakes themselves, Michigan State University,
20 through its Institute of Water Research, devoted
21 its attention to the waters in the tributary
22
streams systems. It is these streams that re-
oo
ceive a large share of the pollutants that find
24 their way into the Great Lakes and in this
25 instance into Lake Michigan. I am including
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198
1 STATEMENT OF PRANK J. KBLLBY
2 herein a letter dated 24 January 1968 which I
3 received from Milton E. Muelder, Vice President,
4 explaining the nature and extent of this research
5 conducted by Michigan State University. I should
6 like to direct your special attention to the para-
7 I graph in this letter referring to the demonstration
8 project which when put into operation would feval-
9 uate methods of removing the entire nutrient-rich
10 effluent of a disposal plant from the receiving
11 stream. This or comparable types of waste handling
12 may become essential to all communities of the States
13 to prevent our wastes from reaching and adversely
14 affecting the Great Lakes.'"
15 (A copy of the letter referred to follows
this statement, commencing on page 339*)
16
1 believe this Conference will deal
17
rather extensively with this problem of enrichment
18 ment of the waters of Lake Michigan.
19 "As it is believed that one of the most
20 troublesome problems of Lake Michigan arises out
21 of the discharge of nutrients into its waters
22 causing growth of inordinate quantities of algae
23 and diatoms, then certainly this project of Michi-
24 gan State University ought to be supported to
25 the fullest extent. Until an economic way is
-------
l STATEMENT OP PRANK J. KELLEY
2 found by which algae -producing nutrients are
3 removed from sewage and other wastes containing
4 them, it is vain to hope that the waters of the
5 Great Lakes can be free from this pollutional
burden.
7 "Vice President Muelder in his letter
8 states that 'The material on all such research
9 projects is being gathered together in one area
under the sponsorship of the Institute of Water
11 Research. All this data and information would
12 be made available to you and any public official
13 having a responsibility in this area
14 "You may rest assured that the agencies
15 of the State of Michigan charged with this re-
16 sponsibility shall work very closely with the
17 research experts of the University of Michigan
18 and of Michigan State University in an effort to
19 find the solutions that we so desperately need
20 at this time .
21 AJ^gI£g_gRQ BLEM-- ••
22 JO^T_SJ^TE_AND^EQER^L JRESPONS^B^ITY
23 "in recent years and particularly
24 last summer the Lake Michigan shoreline of the
25 State of Michigan was inundated with an explosive
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200
1 STATEMENT OF PRANK J. KBLLEY
2 population of alewlvas. These gathered upon
3 the beaches of our State and of the other States
4 on Lake Michigan and created a dirty, smelly,
5 putrescent mess of dead and rotting fish which
$ endangered the health .and welfare of persons
7 who owned property along this shore and the
g members of the general public who made use of
9 private and public facilities.
10 "it is estimated that the tourist
11 business of Michigan suffered a loss of at
12 least $50 million dollars last summer because
13 of this invasion. I am informed by officials
U of the Conservation Department that this species
15 of fish found its way into the Great Lakes via
16 the ocean being lifted up to the reaches of the
17 Great Lakes through the locks and the canal
18 facilities comprising the older and newer St.
19 Lawrence Seaway and the connecting channels."
20 Now, I have also been informed that
21 these were planted in the Pingerling Lakes in
22 New York and that maybe this is where they
23 originated. In any event, they are here and
24 the problem is before us.
25 "Consequently, neither the State of
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201
1 STATEMENT OF FRANK J. KELLEY
2 Michigan nor any person is responsible for their
3 invasion and multiplicitous growth during recent
4 years.
5 "However, since they entered the waters
6 of the Great Lakes through navigational facili-
7 ties constructed by the Federal Government, it
g would seem that certainly there is here a
9 Federal responsibility. In a sense, this mass
10 of dead and putrescent fish along the shores
11 of Lake Michigan during the summer months con-
12 stitutes a pollution problem about which both
13 Federal and State Governments should be con-
14 cerned.
15 "The Michigan Department of Conser-
16 vation has evolved a program for cleaning up the
17 expected recurrence of this problem during this
18 summer which will cost approximately $827,000.
19 On January 16, 1968, I addressed a communication
20 to the Honorable George Romney, Governor of the
21 State of Michigan, recommending that there be
22 budgeted on behalf of the State of Michigan one-
23 half of this sum as its share of the funds that
24 will be needed to pay for the cleanup work which
25 will be necessary. It seems to me that in view
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202
1 STATEMENT OF FRANK J. KELLEY
2 of Federal responsibility the United States
3 ought to fund the other half of the total bill.
4 Attached is a copy of my letter to Governor
5 Romney."
6 (A copy of the communication referred
7 to follows this statement, commencing on page 393.
8 "in further explanation of this program
9 by the Michigan Department of Conservation, I am
10 attaching hereto a clipping which appeared in
11 the Whitehall Forum, White Laker, dated January 4,
12 1968."
13 (A copy of the clipping referred to
14 follows on pages 395 to 399.)
15 "Since you are concerned at this
16 hearing with the protection of the health and
17 welfare of citizens of these four States sur-
18 rounding Lake Michigan, I urge you most seriously
19 to allocate either from present available Federal
20 funds or from some new appropriation, the 50
21 percent Federal share needed to clean up this
22 miasma which will invade our shores in the
23 forthcoming summer months.
24 "GO^CLVSIONS
25 "in conclusion, Mr. Secretary, may I
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203
1 STATEMENT OF FRANK J. KELLEY
2 say that I appreciate this opportunity to appear
3 here at this conference and to express the con-
4 cern that we have in Michigan over the condition
5 of the waters of Lake Michigan.
6 "As I have previously stated, my State
7 has a large stake in maintaining the waters of
g this lake in as clean and pure a condition as
9 can be produced by the science and ingenuity of
10 men.
11 There are many complex problems that
12 assail us in our task of achieving these results.
13 To solve them will require the cooperation and
14 combined efforts of all sectors of our society,
15 the Federal Government, State and local units of
16 government and, of course, the private citizen.
17 I believe that the people of Michigan are making
18 their desires known: namely, that they expect
19 public officials, as well as private citizens,
20 to exert every effort to achieve the goal of
21 restoring and maintaining the waters of Lake
22 Michigan in as clean and pure and wholesome a
23 condition as is attainable.
24 "May I assure you, sir, that I shall
25 cooperate with you to the fullest and shall use
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:204
1 STATEMENT OF FRANK J. KELLEY
2 all the powers of my office as provided by law
3 towards the achievement of this most desirable
4 goal."
5 Thank you.
6 MR. STEIN: Thank you, Mr. Olds.
7 (Applause.)
8 MR. STEIN: I don't know how you did
9 it, Nick. Either you hypnotized them or you
10 put them to sleep, but at least you got them
11 quiet. I hope by the applause that you hypno-
12 tized them.
13
14 (The documents and communications
15 referred to in the statement of Attorney General
16 Frank J. Kelley are as follows:)
17
18
19
20
21
22
23
24
25
-------
dOMREIREINJ
SPONSORED BY
• FRANK J.KELLEY, ATTORNEY GENERAL
•DEPT OF RESOURCE DEVELOPMENT, M.S.U.
•WATER RESOURCES COMMISSION
NOV2J965 CIVIC CENTER LANSING, MICH.
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206
PROCEEDINGS OF THE
CONFERENCE ON
WATER POLLUTION LAW ENFORCEMENT
November 2, 1965
Terrace Room, Civic Center
Lansing, Michigan
Sponsored By:
Frank J. Kelley, Attorney General, State of Michigan
Water Resources Commission
Department of Resource Development of
Michigan State University
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207
TABLE OF CONTENTS
Page
INTRODUCTORY REMARKS 1
Prank J. Kelley, Attornejr General
REVIEW OF MICHIGAN'S WATER POLLUTION LAWS
AND ADMINISTRATION 4
Nicholas V. Olds, Assistant Attorney General
THE ROLE OF THE LEGISIATURE IN ABATEMENT OF
WATER POLLUTION 24
Representative Joseph M. Snyder, Chairman
House Committee on Conservation and Recreation
THE ROLE OF THE LEGISLATURE IN ABATEMENT OF
WATER POLLUTION _--- 31
Senator Carl W. O'Brien, Chairman
Senate Committee on Conservation
MUNICIPAL RESPONSIBILITIES IN WATER POLLUTION
LAW ENFORCEMENT 37
Louis C. Andrews, Jr., Staff Attorney
Michigan Municipal League
TOWNSHIP RESPONSIBILITIES IN WATER POLLUTION
LAW ENFORCEMENT 43
Joseph A. Parlsi, Jr., Executive Director
Michigan Townships Association
COUNTY RESPONSIBILITIES IN WATER POLLUTION
LAW ENFORCEMENT 49
Chester C. Pierce, Attorney
Office of Wayne County Drain Commissioner
ENFORCEMENT OF THE FEDERAL WATER POLLUTION
CONTROL PROGRAM • 60
Murray Stein, Chief Enforcement Officer
Division of Water Supply and Pollution Control
U. S. Department of Health, Education and Welfare
THE ROLE OF THE SCIENTIST IN ENFORCEMENT OF
WATER POLLUTION CONTROL LAWS 74
Dr. Leon W. Weinberger, Chief
Basic and Applied Sciences Branch
Division of Water Supply and Pollution Control
U. S. Department of Health, Education and Welfare
THE CHEMICAL INDUSTRY AND WATER POLLUTION
LAW ENFORCEMENT _--_ __ 8l
Thomas J. Powers
The Dow Chemical Company
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208
THE RELATION OF WATER POLLUTION LAW ENFORCEMENT
TO INDUSTRIAL OPERATION AND DEVELOPMENT 87
Ford T. Shepherd, Vice President
The Mead Corporation
RELATION OF WATER POLLUTION LAW ENFORCEMENT
TO INDUSTRIAL OPERATION AND DEVELOPMENT 97
John A. Moekle, Associate Counsel
Office of General Counsel
Ford Motor Company
SUMMARY REMARKS T 10?
Frank J. Kelley, Attorney General
QUESTIONS AND ANSWERS
Morning -------------------------- -113
Afternoon ------------------------- -117
PROGRAM-WATER POLLUTION LAW ENFORCEMENT CONFERENCE 1
ATTENDANCE REGISTRATION iii
-------
209
PROGRAM
CONFERENCE ON
WATER POLLUTION LAW ENFORCEMENT
Sponsored by
ATTORNEY GENERAL FRANK J. KELLEY
WATER RESOURCES COMMISSION
DEPARTMENT OF RESOURCE DEVELOPMENT OF
MICHIGAN STATE UNIVERSITY
November 2, 1965
Terrace Room, Civic Center
Lansing, Michigan
9:30 INTRODUCTORY REMARKS
Frank J. Kelley, Attorney General of the State of
Michigan.
9:^5 REVIEW OF MICHIGAN'S WATER POLLUTION LAWS AND
ADMINISTRATION
Nicholas V. Olds, Assistant Attorney General
10:00 THE ROLE OF THE LEGISLATURE IN ABATEMENT OF POLLUTION
Rep. Joseph M. Snyder, Chairman of House Committee on
conservation, and sen. Carl W. QJter>len, Chairman of
Senate Committee on Conservation.J
10:30 RECESS
10:45 MUNICIPAL RESPONSIBILITIES IN WATER POLLUTION .LAW
ENFORCEMENT
Louis C. Andrews, Jr., Staff Attorney, Michigan Municipal
League.
11:00 TOWNSHIP RESPONSIBILITIES IN WATER POLLUTION LAW
ENFORCEMENT
Joseph A. Paris!, Jr., Executive Director, Michigan
Townships Association.
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210
11:15 COUNTY RESPONSIBILITIES IN WATER POLLUTION LAW
ENFORCEMENT
Chester C. Pierce, Attorney for Office of Wayne County
Drain commissioner.
11:30 THE ROLE OP THE FEDERAL GOVERNMENT IN WATER POLLUTION
CONTROL LAW ENFORCEMENT
Murray Stein, Chief, Enforcement Branch, Division of
Water Supply and Pollution Control, Public Health
Service, Department of Health, Education and Welfare,
Washington, D. C.
12:00 DISCUSSION
12,^30 LUNCH
2:00 THE ROLE OF THE SCIENTIST IN ENFORCEMENT OF WATER
POLLUTION CONTROL LAWS
Dr. Leon W. Weinberger, Director of Research, Water
Supply and Pollution control, U. S. Department of
Health, Education and Welfare, Washington, D. C.
2:30 RELATION OF WATER POLLUTION LAW ENFORCEMENT TO
INDUSTRIAL OPERATION AND DEVELOPMENT
Thomas J. Powers, Dow Chemical Company, Ford T. Shepherd,
Vice President, The Mead Corporation, and John A. Moekle,
Associate Counsel, Office of General Counsel, Ford Motor
Company.
3:45 DISCUSSION
4:15 SUMMARY REMARKS
Frank J. Kelley, Attorney General of the State of Michigan.
4:30 ADJOURN
11
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211
WATER POLLUTION LAW ENPUnOEMENT CONFERENCE
November 2, 1965
Attendance Registration
Wayne H. Abbott, Jr.
City of Ann Arbor
City Hall
Ann Arbor, Michigan
Milton P. Adams
1314 Weber Drive
Lansing, Michigan 48912
James E. Akers
Monroe County Health Dept.
456 Borgess
Monroe, Michigan
Frederick E. Althaus, Jr.
Assistant City Attorney
City of Grand Rapids
328 Jefferson Avenue
Lowell, Michigan
Louis C. Andrews, Jr.
Staff Attorney
Michigan Municipal League
205 S. State Street
Ann Arbor, Michigan
Oliver S. Angell
DeWltt Township
Route # 4, Box 414
Lansing, Michigan
Walter E. Ash
Kalamazoo County Health Dept.
241 W. South Street
Kalamazoo, Michigan
Fred W. Baker
Shlawassee County Drain Comm'r.
Court House
Corunna, Michigan
A, R. Balden
Chrysler Corporation
P. 0. Box 1118
Detroit, Michigan
L. F. Baldwin
Water Resources Commission
725 Water Street
Eaton Rapids, Michigan
B. Dale Ball, Director
Michigan Dept. of Agriculture
Lewis Cass Building
Lansing, Michigan 48913
George J. Barrett
Wayne County Health Department
Dearborn, Michigan
Melvin S. Bauman
Twin Cities Sanitarian
St. Joseph-Benton Harbor City
Halls
St. Joseph, Michigan
Curtis G. Beck
Water Resources Commission
Attorney General's Office
554 Hollister Building
Lansing, Michigan
Richard Beelman
Bay County Health Department
610 Frost Drive
Bay City, Michigan
Bud Bender
Drew Chemical Corporation
2421 W. Main Street
Kalaraazoo, Michigan
Lewis D. Benson
City of Owosso
203 Owosso Savings Bank Bldg.
Owosso, Michigan
Wallace J. Benzie
Genesee County Drain Commissioner
919 Beach Street, Room 203
Flint, Michigan
ill
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212
Julius L. Berns
City 'Attorney
City of Qrosse Pointe Woods
957 Vernier Road
Qrosse Pointe Woods, Michigan
P. W. Best
Hercules Powder Company
HarToor Beach, Michigan
Norman Billings
Water Resources Commission
200 Mill Street
Lansing, Michigan
Carl J. Blabaum
Wisconsin State Committee on
Water Pollution
453 State Office Building
Madison, Wisconsin 53702
Art Boblan
Manistee-Mason District Health
Department
Manistee, Michigan
Howard I. Bond
Walled Lake, Novi, Beverly Hills
and Bloomfield Township
2055 Orchard Lake Road
Pontiae, Michigan
Frank Bouraa
Kent County Drain Commissioner
1500 Schribner
Grand Rapids, Michigan
Ruth Bowen
League of Women Voters
613 Moores River Drive
Lansing, Michigan
Oscar B. Boyer
Oakland County Health Dept,
1200 N. Telegraph Road
Pontiac, Michigan
Lee E. Bracey
Montcalm County Drain Coram,
Stanton, Michigan
E. N. Brandt
Dow Chemical Company
4309 Castle Drive
Midland, Michigan
Glen Breakie
Village of Rochester
125 N. Alice Street
Rochester, Michigan
Robert A. Briggs
Detroit Edison Company
2000 Second Avenue
Detroit9 Michigan
Luther L. ±srodbeck
City of Alma
714 Second Avenue
Alma, Michigan
Dale W. Brooks
Flint Health Department
121 E. Seventh Street
Flint, Michigan
James B. Brown
Ingham County Prosecutor's
Office
116 W.1 Ottawa Street
Lansing, Michigan
Robert L. Bryan
Huron-Clinton Metropolitan
Authority
1750 Guardian Building
Detroit, Michigan 48226
P. R, Bumaman
Scott Paper Company
328 Haverford Place
Swarthmore, Pennsylvania
W, R. cady
Allied Chemical Corporation
Solvay Process Division
7501 W. Jefferson
Detroit, Michigan
Robert D. Caine
Sutherland Paper Company
4186 E. Gull Lake Drive
P. 0. Box 174,
Hickory Corners, Michigan
iv
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213
Joseph S. Campbell, Jr.
City Engineer
17700 Port Street
Rlverview, Michigan
Andre Caron
National Council for Stream
Improvement
Kalamazoo College
Kalamazoo, Michigan
L. B. Chamberlain
Midland City-County Health Dept.
36 Pine Street
Sanford, Michigan
Dale Chapman
Clinton County Drain Corom'r.
Court House
St. Johns, Michigan
John Chascsa
Lake Erie Clean Up Committee
7281 Center Street
Newport, Michigan
R. Burr Cochran
City Attorney
Whitehall, Michigan
Richard Cogswell
City of Whitehall
Whitehall, Michigan
Grover W. Cook
Dept. of HEW
433 W. Van Buren Street
Chicago, Illinois
Gerald P. Cooper
Research and Development Section
Mich. Department of Conservation
Stevens T. Mason Building
Lansing, Michigan 48926
Mason Copitani
City of Warren
Municipal Building
Warren, Michigan
Nez Cote
2 Duffy Street
Manlstee, Michigan
Robert Courchaine
Water Resources Commission
200 Mill Street
Lansing, Michigan
F. L. Coventry
Citv of Flint
1708 Forest Hill
Flint, Michigan
Jake Craaybeek
City of Adrian
464 Stockford Drive
Adrian, Michigan
Russell D. Craun
City of Warren
27937 Jean Street
Warren, Michigan
Almond B. Cressman
Clinton County Board of
Supervisors
Route # 4
St. Johns, Michigan
Charles D. Cronenworth
Diamond Crystal Salt Company
961 N. Riverside
St. Clair, Michigan
James J. Culbert
City of Dowagiac
107 S. Mill Street
Dowagiac, Michigan
49047
Merlin E. Damon
Macomb County Health Dept.
43525 Elizabeth Road
Mt. Clemens, Michigan
William Daniels
Consolidated Packaging Corp.
921 E. Elm Avenue
Monroe, Michigan
A. T. David
Elba Township Planning Comm.
1390 Pratt Drive
Lapeer, Michigan
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214
William R. Day
Wyandotte Chemicals
1609 Biddle
Wyandotte, Michigan
Anthony W. DeBlaise
Dept. of Public Works and
Utilities
City Hall
Flint, Michigan
Prank J. DeDecker
Spalding, DeDecker & Assoc., Inc.
1405 S. Woodward Avenue
Birmingham, Michigan
Huntley DeLano
Municipal Waste Treatment Plant
943 Ballard, S. E.
Grand Rapids, Michigan
Robert J. Dencer
Bay County Board of Public Works
812 County Building
Bay City, Michigan
John P. Deppen
City of Howell
City Hall
Howell, Michigan
Joseph G. DIFranusco
City Attorney's Office
2810 State Street
Saginaw, Michigan
George Dlesk
Packaging Corp. of America
Filer City, Michigan
Bruce F. Doolittle
Watervliet Paper Co.
Watervliet, Michigan
George S. Douglas
The Mead Corporation
709 Fifth Avenue, So.
Escanaba, Michigan
Gordon A. Dressel
Lake Shore High School
23118 Joy Avenue
St. Clair Shores, Michigan
Roy E. Dunn
State Capitol
St. Paul, Minnesota
Archie E. Durkee
Flint City Health Department
121 E. Seventh Street
Flint, Michigan 48502
Victor Eckhardt
Barry County Drain Comm.
Route # 3
Lake Odessa, Michigan
Gerald E. Eddy, Chief
Geological Survey Section
Department of Conservation
Stevens T. Mason Building
Lansing, Michigan 48926
Hugh B. Eldrea
Monitor Sugar Division
Robert Gage Coal Company
2600 S. Euclid
Bay City, Michigan
Claud R. Erickson
Governor's Task Force on Water
Rights, Use & Pollution Control
P. 0. Box 570
Lansing, Michigan
Harvey Eustrom
Consulting Engineer
10523 East M-78
Haslett, Michigan
F. C. Ewbank
M. M. P. A.
Imlay City, Michigan
Marvin B. Fast
U. S. Public Health Service
Room 2101, TsT. Building
Ann Arbor, Michigan
Carlos M. Fet^erolf, Jr.
Water Resources Commission
200 Mill Street
Lansing, Michigan
John Fleming
Public Health Administrator
Van Buren County Health Dept.
Paw Paw, Michigan
vi
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215
David Flotow
Consolidated Packaging Corp.
Monroe, Michigan
C. Edward Fuess, Supt.
Wastewater Treatment Plant
City of Sturgls
Route # 2
Sturgis, Michigan
E. Puller
Great Lakes Steel Corporation
Ecorse
Detroit, Michigan 48229
Ralph A. Garno, Supt.
Wastewater Treatment
602 East Main Street
Niles, Michigan
Douglas Garry
Manlstee Water Department
121 Sibben Street
Manlstee, Michigan
Perry Geeck
Isabella County Drain Comm.
Route # 1
Coleman, Michigan
Patricia S. Gllgallon
League of Women Voters
24407 Tamarack Circle
Southfield, Michigan
Mark Glendennlng
Morgan McCool, Inc.
505 N. Cedar Street
Traverse City, Michigan
Colonel Leonard J. Goodsell
Great Lakes Commission
5104 I8T Building
North Campus
Ann Arbor, Michigan 48105
Gerald GX>shorn
Village of Flat Rock
26643 W. Huron River Drive
Flat Rock, Michigan 48134
©ale W. Granger
Water Resources Commission
200 Mill Street
Lansing, Michigan
R. M. Granura
Abltibi Corporation
Route # 1
Osslneke, Michigan
Jack I. Green
Associated Petroleum Industries
of Michigan
W. Ottawa Street
Lansing, Michigan
Michael A. Groen
City of Dearborn
7446 Ternes Avenue
Dearborn, Michigan
Rollen A. Gross
Isabella County Drain Comm'r.
Route # 1
Coleman, Michigan
Sidney M. Gunther
Gunther and Choka
72 W. Adams Street
Chicago, Illinois 60603
Richard Hammerstein
Nelson Chemicals
12345 Schaefer Highway
Detroit, Michigan
Edwin N. Hannula
Lenawee County Health Dept.
113 W. Front Street
Adrian, Michigan
Paul A. Harlamert
Jones, Henry & Williams
2000 West Central Avenue
Toledo, Ohio 43606
Howard W. Harlow
Dow Chemical Company
P. 0. Box 510
Bay City, Michigan 48609
vli
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216
J. B. Hatton
Grand Haven,
Michigan
Robert Haw
Department of Public Works
City Hall
Flint, Michigan
Homer J. Hayward
Ayres, Lewis, Norrls & May
300 Mark Hannah Place
Ann Arbor, Michigan 48103
John Hennessey
City of Pontlac
155 N. Opdyke Road
Pontlac, Michigan
Raymond W. Henschel
American Can Company
2733 Fourteenth Avenue
Menominee, Michigan
Mrs. Herbert Heuman
League of Women Voters
1601 Badgley Road
Jackson, Michigan 49203
Walter H. Hess
King Seeley Thermos Company
315 S. First Street
Ann Arbor, Michigan
Harold C. Hickman
George Jerome & Co.
1437 First National Bldg.
Detroit, Michigan
Russell G. Hill
Dept. of Resource Development
Michigan State University
Unit E - Wells Hall
East Lansing, Michigan
Robert A. Hockstad
Elk Rapids Packing Company
304 Pine Street
Elk Rapids, Michigan
Paul Hoelderle
Fine Paper Division
Weyerhaeuser Company
712 Darby Lane
Kalamazoo, Michigan
Ernest Hoffman
Barry County
Route # 3
Hastings, Michigan
Donald L. Holley
John R. Snell Engineers,
221 N. Cedar Street
Lansing, Michigan
Inc.
Frank F. Hooper
Institute for Fisheries Research
University of Michigan
Ann Arbor, Michigan
Kenneth J. Horton
Michigan Audubon Society
Jackson Audubon Club
1002 S. Jackson Street
Jackson, Michigan
H. J. Hotz, Sr.
S. D. Warren Company
2400 Lakeshore Drive
Muskegon, Michigan
F. E. Howe, President
Federation of Lakefront
Associations
22464 Lakecrest
St. Clair Shores, Michigan
George E. Hubbell
Hubbell, Roth 8s Clark, Inc.
2709 Telegraph Road
Bloomfield Hills, Michigan
John F. Hunter
Wyandotte Chemicals Corp.
47781 North Shore Drive
Belleville, Michigan
F. Neil Jackson
City of Owosso
1400 Buckley
Owosso, Michigan
Kenneth G. Jackson
Great Lakes Steel Corp.
2900 Grant Building
Pitt sburgh, Pennsylvania
15219
viil
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21V
Mel Jansen
City of St. Clalr Shores
24705 Harmon
St. Clair Shores, Michigan
Mrs. Gale E. Jensen
League of Women Voters
3045 Lakewood Drive
Ann Arbor, Michigan
Edwin L. Johnson
Benton Harbor-St. Joseph Joint
Sewage Disposal Plant
P. 0. Box 206
St. Joseph, Michigan 49085
Ronald C. Johnson
Water Resources Commission
3407 W. Mt. Hope
Lansing, Michigan
David K. Jones
2024 E. Centre Avenue
Portage, Michigan
Archie K. Joyce
Wastewater Treatment Division
City of Saginaw
2322 Whitemore Place
Saginaw, Michigan
David B. Kahn
City of Detroit
15812 Kentucky
Detroit, Michigan 48238
Joseph M. Karmann
Izaak Walton League
9563 Ford Road
Ypsllanti, Michigan
Ide Keeler
School of Public Health
University of Michigan
P. 0. Box 134
Ann Arbor, Michigan
Hon. Frank J. Kelley
Michigan Attorney General
The Capitol
Lansing, Michigan
Harold A. Kelley
Jones, Henry and Williams
2000 W. Central Avenue
UJoledo, Ohio 43606
James A. Kelly
Dow Chemical Company
2914 Braley Court
Midland, Michigan
Lawrence M. Kelly
Dickinson, Wright, McKean &
Cudlip
800 First National Building
Detroit, Michigan
John E. Kinney
Consulting Sanitary Engineer
1910 Cambridge Road
Ann Arbor, Michigan
Guy E. Klstler
Lakes Area Conservation Club
1024 Wheaton Avenue
Kalamazoo, Michigan
Mary Klein
University of Michigan
309 Maple Ridge
Ann Arbor, Michigan
Walter H. Koepp
Michigan Technological Univ.
207 East Street
Houghton, Michigan
Howard H. Kramer
Eaton County Board of
Supervisors
City Hall
Charlotte, Michigan
Lou Kramer
Hubbard Lake Sportsmen
Improvement Association
Hubbard Lake, Michigan
Peter Kuhj Qhie? Enforcement Officer
State & Interstate Pollution Problems
Enforcement Branch
Dlv. of Water Supply & Pollution Control
Public Health Service
Dept. of Health, Ed. & Welfare
633 Indiana, N. W.
ffeshingtfcft, D, «.
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218
James A. Kurtz, Chief Sanitarian
Eaton County Health Department
319 E. Lawrence Street
Charlotte, Michigan
Roland Labudy
Silver Mill Frozen Food
Eau Claire, Michigan
P. E. Landbaek
Detroit Edison Company
16189 Oakfield
Detroit, Michigan 48235
V. W. Langworthy
Water & Sewage Works Magazine
P. 0. Box 1315
Lansing, Michigan
Paul F. Leavitt
Gerber Products Company
450 State Street
Fremont, Michigan
Roger W. Lewis
Muskegon County Health Dept.
Environmental Health Division
1890 Crestwood Lane
Muskegon, Michigan 49441
George F. Liddle
Water Resources Commission
1607 Sixth Street
Muskegon, Michigan
Stanley Llevense
Fish Section
Department of Conservation
Stevens T. Mason Building
Lansing, Michigan 48926
Fred Lind
rzaak Walton League
3115 N. Prospect Road
Ypsllanti, Michigan
LeRoy J. Linn, Supt.
Wastewater Treatment Plant
City of Hillsdale
43 State Street
Hillsdale, Michigan
Gene Little
Michigan Chamber of Commerce
215 S. Washington Avenue
Lansing, Michigan
Orlin K. Loen
City of Kalamazoo
241 W South Street
Kalaiuaaoo, Michigan
Robert P. Logan
Scott Paper Company
9125 W. Jefferson
Detroit, Michigan
Ralph L. Lowe
Water Resources Commission
City of St. Clalr Shores
20631 Elizabeth
St Clair Shores, Michigan
Arthur Maass
City of Midland
City Hall
Midland, Michigan
Ian M. MacDonald
City of Trenton
136 St. Joseph
Trenton, Michigan
James MacDonald
Midland Wastewater
601 Fitzhugh
Midland, Michigan
Fred Mammel
City of Ann Arbor
City Hall
Ann Arbor, Michigan
Peter Marshall
City of Brighton
City Hall
Brighton, Michigan
Larry Martin
Waste Treatment Plant
Board of Public Works
213 Howard Avenue
Holland, Michigan
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219
John Max
City of Ypsllanti
1105 W. Cross Street
Ypsllanti, Michigan
George McBrlde
Infllco Division
G. A. T. C.
22528 Ford Road
Dearborn, Michigan
James H. McDermott
Assistant Attorney General
State Capitol
Madison, Wisconsin
Harry E. McEntee
City of Mt. Clemens
1750 Clara Avenue
Mt. Clemens, Michigan
Kenneth A. McGeorge
Macomb County Drain Comm.
39 Lodewyck
Mt. Clemens, Michigan
Me Parti in
School of Public Health
University of Michigan
512 Packard Street
Ann Arbor, Michigan
Kenneth N. Mendenhall
City of Beldlng
City Hall
Beldlng, Michigan
Clarence J. Messner
1572 Jones
Ann Arbor, Michigan
Glair W. Miller
Livingston County Drain Comm.
7841 Munsell Road
Howell, Michigan
John A. Moekle
Associate Counsel
Office of General Counsel
Ford Motor Company
The American Road
Dearborn, Michigan
Thomas Moore
Gratlot County Drain Comm'r.
Bannister, Michigan
David Morris
City Attorney
City Hall
Kalamazoo, Michigan
Frank Moulton, Director
M. U. C. C.
Freeland, Michigan
De\rere C. Murray
fielnt Township
2091 Jefferson Street
Holt, Michigan
James V. Murray
Mich. State Highway Dept.
Stevens T. Mason Building
Lansing, Michigan 48926
Stew Myers
M. U. C. C.
106 Ivanhoe, N. E.
Grand Rapids, Michigan
R. J. Nacy
Manufacturing Engineering Office
Chrysler Corporation
P. 0. Box 1859
Detroit, Michigan
Jerry Nadolney
Prosecuting Attorney
Gogebic County
Bessemer, Michigan
Joseph E. Neipling
City of Pontlac
450 Wide Track Dr., East
Pontlac, Michigan
Mrs. Charles Neubrecht
League of Women Voters
9091 Esper
Detroit, Michigan 48204
Mrs. Grace Newbold
Federation of Women's Clubs
210 N. Lake Street
Harrison, Michigan
xi
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220
Lester H. Newbold, Vice-Pres,
M. U. C. C.
210 N, Lake Street
Harrison, Michigan
Michael E. Newton
Water Resources Commission
200 Mill Street
Lansing, Michigan
Lester R. Nichols, II
Dept. of Economic Expansion
Lewis Gass Building
Lansing, Michigan
A. E. Nickless
City of Frankenmuth
234 Trinklein
Frankenmuth, Michigan
Donald M. Oakes
2518 Foster, N. E.
Grand Rapids, Michigan
Hon. Carl W. O'Brien
State Senate
The Capitol
Lansing, Michigan
Roger P. O'Connor
Corporation Counsel
City of Detroit
1010 City-County Building
Detroit, Michigan
Lorlng F. Oeming
Water Resources Commission
200 Mill Street
Lansing, Michigan
Guy V. Oldfield
School o* Public Health
University of Michigan
1115 Herman Place
Ann Arbor, Michigan
Nicholas V. Olds
Assistant Attorney General
554 Hollister Building
Lansing, Michigan
L. O'Leary
U. S. Public Health Service
Grosse lie, Michigan
Ann Oliver
League of Women Voters
927 S. Washington Avenue
Lansing, Michigan 48910
Thomas Osmer
Elba Township Planning Comm.
539 Golf Road
Lapeer, Michigan
Joseph A. Parisi, Jr.
Michigan Townships Association
712 S. Holmes Street
Lansing, Michigan 48912
J. G. Parnell
Board of Public Works
602 E. Main Street
Niles, Michigan
Laurence H. Pate
Pate, Him & Bogue, Inc.
726 Michigan Building
Detroit, Michigan 48226
S. M. Paterson
Citizens Research Council
204 Bauch Building
Lansing, Michigan
Stanley B. Patterson
Wayne County Drain Comm.
19481 Patton
Detroit, Michigan 48219
Robert A. Payne
Eau Claire Packing Company
Eau Claire, Michigan
0. K. Petersen
Consumers Power Company
212 W. Michigan Avenue
Jackson, Michigan 49201
Ralph W. Petrie
557 Paw Paw
Benton Harbor, Michigan
Chester C. Pierce
Attorney at Law
3523 Cadillac Tower
Detroit, Michigan
xil
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221
Frank Plpp
Detroit Water Department
'735ifiandolph Street
Detroit, Michigan 48226
Wayne D. Potter
Consumers Power Company
739 Briarcllff Road
Jackson, Michigan
Don E. Powell
Mobil Oil Company
2390 Vernon
Trenton, Michigan
Thomas J. Powers
Dow Chemical Company
4205 Arlington Street
Midland, Michigan
Joseph W. Brice
Washtenaw County Health Dept.
Washtenaw County Building
Ann Arbor, Michigan
Ralph W. Purdy
Water Resources Commission
200 Mill Street
Lansing, Michigan
S. R. Quackenbush
Mich. Dept. of Agriculture
Lewis Cass Building
Lansing, Michigan
Lawrence L. Quill
Institute of Water Research
Michigan State University
East Lansing, Michigan 48823
Raleigh R. Raubold
City of Gibraltar
136 St. Joseph
Trenton, Michigan
Francis D. Rawlinson
City of Sturgis
Administrative Building
Sturgis, Michigan
A. C. Reed
Midland County Drain Comm'r.
Court House
Midland, Michigan
John B. Reynolds
District Health Dept. # 3
County Building
Charlevoix, Michigan
Robert J. Riemersma
Board of Public Works
City of Holland
385 Falrhill Court
Holland, Michigan
Gerald Rlggs
Hillsdale County Drain Comm.
Hillsdale County Court House
Hillsdale, Michigan
John A. Roberts
St. Clair Shores City Council
22560 Manor Drive
St. Clair Shores, Michigan
Richard D. Rohr
Abitlbi Corporation
1400 Buhl Building
Detroit, Michigan
Leo H. Rothe
Shlawassee County Health Dept,
Court House
Michigan
James Rouman
M. U. C. C.
P. 0. Box 2235
Lansing, Michigan
48911
Philip E. Rowston
City Attorney
City of Pontiac
64 Spokane Drive, Apt.
Pontiac, Michigan
18
Howard K. Roxborough
Allied Paper Corporation
1608 Lake Street
Kalamazoo, Michigan
John G. Rulison
Geological Survey Section
Department of Conservation
Stevens T. Mason Building
Lansing, Michigan 48926
xiii
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222
Douglas Sanback
Oil and Gas Office
204 Court Street
Mt. Pleasant, Michigan
Stanley D. Sattler, Sanitarian
Eaton County Health Department
314 W. Harris
Charlotte, Michigan
Sydney C. Schachtmeister
Berrien County Health Dept.
P. 0. Box 365
St. Joseph, Michigan
Richard S. Schmitz
Power Train Group Staff
Chrysler Corporation
P. 0. Box 2888
Detroit, Michigan 48231
Susan E. Schuur
League of Women Voters
3100 Holiday Drive
Lansing, Michigan
J. R. Sebastian, Jr.
Amway Corporation
400 Michigan Trust Building
Grand Rapids, Michigan
Carl Sexton
SM'a'wassee County Zoning Adminis.
Court House
Corunna, Michigan
A. M. Shannon
City of Detroit
Department of Water Supply
735 Randolph
Detroit, Michigan 48226
J. Wesley Shaw
Marathon Oil Company
15911 Wyoming
Detroit, Michigan 48238
Ford T. Shepherd, Vlce-Pres.
The Mead Corporation
501 Fleming Building
800 Seventeenth St., N. W.
Washington 6, D. C.
John M. Sherbeck
City of Bay City
Wastewater Works
City Hall
Bay City, Michigan
Philip V. Shirley
Ingham County Health Dept.
119 W. Washtenaw
Lansing, Michigan
Michael Slmkins
Central Mich. District Health Dept
107 N. Adams
Mt. Pleasant, Michigan
George R. Sims
Saginaw Steering Gear Division
General Motors Corporation
64 Davis Drive
Saginaw, Michigan
Roger A. Slykhouse
Weeber'and Slykhouse
2221 W. Leonard
Grand Rapids, Michigan
Raymond Smit
Ayres, Lewis, Norrls and May
500 Wolverine Building
Ann Arbor, Michigan
Mrs. C. B. Smith
League of Women Voters
314 S. Circle Drive
Williamston, Michigan
James W. Smith
Kalamazoo County Prosecuting
Attorney's Office
227 W. Michigan Avenue
Kalamazoo, Michigan
Sherman Smith
Isabella County Drain Comm.
Rlverdale, Michigan
William W. Smith
City of Bay City
Water Department
City Hall
Bay City, Michigan 48706
xlv
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223
Russell T. Snow
Macomb County Drain Office
115 Groesbeck Highway
Mt. Clemens, Michigan
Hon. Joseph M. Snyder
House of Representatives
The Capitol
Lansing, Michigan
Joseph M. Snyder, II
County Drain Commission
115 Groesbeck
Mt. Clemens, Michigan
Werner Sommel
City of Adrian
1654 Valley Road
Adrian, Michigan
Paul T. Spelman
City of Wyoming
2131 Greenview, S. W.
Wyoming, Michigan
Murray Stein, Chief
Enforcement Bj?*nch
Division of Water Supply and
Pollution Control
Public Health Service
Dept. of Health, Ed. & Welfare
633 Indiana, N. W.
Washington, D. C.
Perd H. Stevens
Barry County Drain Comm'r.
Route # 3
Bellevue, Michigan
Claude A. Stewart
County Drain Commission
Court House
Lapeer, Michigan
William F. Stoeker
General Chemical Division
Allied Chemical Corporation
P. 0. Box 70
Morristown, New Jersey
William Stonebrook
City of Wyoming
1130 40th, S. W.
Wyoming, Michigan
Robert C. Straube
Department of Conservation
701 North Road
Penton, Michigan
Roman Suess
Menasha Corporation
121 Court Street
Plainwell, Michigan
Freeland Sugden
County Drain Commissioner
Court House
Caro, Michigan
Darrel G. Suhre
Water Department
City of Detroit
735 Randolph Street
Detroit, Michigan 48226
Raymond F. Swift
Ingham County Health Dept.
Court House
Mason, Michigan
G. N. Tiberlo
Plant Engineering Section
General Motors Corporation
5-134 G M Building
Detroit, Michigan 48202
Orcelia Wallin Torson
2265 Wilshire, S. E.
Grand Rapids, Michigan 49506
Roy E. Trim
City of Whitehall
405 E. Colby Street
Whitehall, Michigan
F. E. Tucker
National Steel Corporation
Welrton, West Virginia
Robert L. Turner
Geography Department
Wayne State University
3024 MaraiS
Royal Oak, Michigan
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Grey J. Turney
Ingham County Health Dept.
119 W. Washtenaw
Lansing, Michigan
W. G. Turney
Water Resources Commission
200 Mill Street
Lansing, Michigan
Herbert Van Aken
Governor's Task Force on Water
Route # 3
Eaton Rapids, Michigan
Jack Van Coeverlng
6150 Commerce Road
Orchard Lake, Michigan 48034
T. L. Vander Velde
Mich. Dept. of Health
3500 N. Logan Stfeet
Lansing, Michigan
Harry L. Vanderwerp
Peerless Cement Company
1144 Free Press Building
Detroit, Michigan
George J. Van Dorp
Finkbeiner, Pattis & Strout
2130 Madison Avenue
Toledo, Ohio
W. Van Vuren
H. J. Heinz Company
275 W. 24th Street
Holland, Michigan
H. S. Vaughan
Hillsdale County Supervisor
Hillsdale, Michigan
Mrs. C. L. Vinge
League of Women Voters
4115 Hulett Road
Okemos, Michigan
Henry D. Visschers
Elba Township Planning Comm.
3931 S. Shore Drive
Lapeer, Michigan
John N. Vlachos
City Attorney
City of Portage
207 Park Building
Kalaroazoo, Michigan
John E. Vog-c
Michigan Dept. or Health
Division of Engineering
3500 N. Logan Street
Lansing, Michigan
D. L. Voigts
Packaging Corp.. of America
Filer City, Michigan
Eugene G. Wanger
City Attorney
City of Lansing
City Hall
Lansing, Michigan
Victor^ L. Warner
Branch-Hillsdale District
Health Department
35 S. Sprague Street
Coldwater, Michigan 49036
Norman G. Watson
Diamond Crystal Salt Co.
1050 Indiana
Marysville, Michigan
Hugh'D. Wear
Dept. of Municipal Utilities
City of Dowagiac
Dowagiac, Michigan
Fred D. Weaver
Kalamazoo County Health Dept.
241 W. South Street
Kalamazoo, Michigan
James R. Webb
School of Public Health
University of Michigan
Ann Arbor, Michigan
Dr. Leon W. Weinberger
Director of Research
Water Supply & Pollution Control
Dept. of Health, Ed. & Welfare
Washington, D. C.
xvi
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225
Wallace E. Weiss
City of Frankenmuth
224 Parker Street
Frankenmuth, Michigan
Tom Welsh
County Drain Commission
115 Groesbeck
Mt. Clemens, Michigan
Louis A, Welt
Detroit Testing Laboratory
554 Bagley
Detroit, Michigan 48226
Dr. Casey E. Westell, Jr.
Packaging Corp. of America
555 Cherry Road
Manistee, Michigan
Mrs. George E. White
League of Women Voters
2124 Spring Arbor Road
Jackson, Michigan
Arnold B. Whitney
City of Lapeer
576 Liberty Street
Lapeer, Michigan
Cranston V/ilcox
Branch-!!'. Msdale !> UU.r1.ct
Health Department
35 S. Sprague
Coldwater, Michigan 49036
Robert C. . ,'iJ.liamson
Great Lakes i'teel Corp.
1796 Churchill Avenue
Trenton, Michigan
J. Mllo Wilson
Mariistee-Maaon Dle^r'o;;
He? 1th Department
401 E. LudLi^tor. Avenue
Ludington, M4.ch!pan
Georr-e }•'., Win;*
Ilacomh Go'Tit;' Praln Comm.
115 Groesbeck
Mt. C. I omen ? , M i. ci i"' -' n
Wade D. Withey
City of Flint
City Hall
Flint, Michigan
Arthur 0. Wolin
Izaak Walton League
5846 Kenllworth
Dearborn, Michigan
L. D. Working
City of Port Huron
928 Tenth Avenue
Port Huron, Michigan
Carl D. Wright
Consoer, Townsend and Assoc.
560 E. Grand Avenue
Chicago, Illinois
George F. Wyllle
City of Lansing
7th Floor, City Hall
Lansing, Michigan 48907
John H. Yoe
City of St. Clalr Shores
2378 First National Building
Detroit, Michigan
H. A. Young
Geological Survey Section
Department of Conservation
Stevens T. Mason Building
Lansing, Michigan 48926
Lawrence A. Zlnder
Consolidated Packaging Corp.
72 W. Adams Street
Chicago, Illinois
xvll
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INTRODUCTORY REMARKS
By
Attorney General Prank J. Kelley
We wish to welcome all you gentlemen to Lansing and express our
gratification at the excellent turnout. I hope that the program we
have arranged will be productive and enlightening. On October 2,
when President Johnson signed the Water Quality Act of 1965* he
made the following significant statements:
"The clear, fresh waters that were our national heritage have
become dumping grounds for garbage and filth. They poison
our fish, they breed disease, they despoil our landscapes.
"No one has a right to use America's rivers and America's
waterways that belong to all the people as a sewer. The
banks of a rivor may belong to one man or one industry or
one state, but the waters which flow between those banks
should belong to all the people.
"There is no excuse for a river flowing red with blood from
slaughterhouses. There is no excuse for paper mills pouring
tons of sulphuric acid into the lakes and streams of the
people of this country. There is no excuse -- and we should
call a spade a spade — for chemical companies and oil
refineries using our major rivers as pipelines for toxic
wastes. There is no excuse for communities to use other
peoples' rivers as a dump for their raw sewage.
"This sort of carelessness and selfishness simply ought to
be stopped; and more, it just must be reversed. And we are
going to reverse it.
During this year's session of our State Legislature, amend-
ments to the Water Resources Act were adopted which considerably
strengthened the authority of Michigan's Water Resources Commission
to control and, in fact, put a halt to many instances of pollution
which previously were beyond the reach of that agency. An entirely
new definition of unlawful pollution was incorporated in these
amendments which include factors not previously considered important,
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In a sense this was an up-dating of our basic Water Pollution Control
Act
However} it is one thing to have a law on the books and quite
another thing to enforce it, because enforcement of water pollution
control laws steps on many tender toes.
While there is universal support for the elimination of pollution,,
there is often resistance when enforcement directly affects vested
interests. Much of this resistance is caused by a lack of understand-
ing concerning this problem. Consequently, I felt that it was time
that we summoned a conference on this most important aspect of our
water pollution control laws, namely, the ENFORCEMENT OF THE LAW
ITSELF.
In organizing this conference I decided that in all fairness it
should include those who are responsible for enforcing these laws;
also, those concerning whom enforcement action might be taken. How-
ever, I would like to stress the word "RESPONSIBILITY." All of us --
those who administer the laws, as well as those who must abide by
them — have RESPONSIBILITIES towards the public to obey these laws
voluntary so that the desired objective of restoring and keeping
our waters clean be achieved with a minimum amount of coercion.
It is with this thought in mind that I requested participation
by municipal, township and county officials and also participation
on the part of representative industries in our state.
You will also notice that the federal government now plays a very
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228
Important role in the control of the pollution of the waters of the
nation. It has been the position of the officials of the State of
Michigan that the primary responsibility for the enforcement of
pollution control laws resides in the state and that the state should
meet this obligation without any hesitation or equivocation.
In our appearances before congressional committees, we have been
assured that so long as the states measure up to their responsibili-
ties, they need have no fear of federal intervention; but, on the
other hand, we were warned that should we fail in this duty, congress
would have no hesitancy in preempting the field. Consequently, I
have Invited Murray Stein, who is the Chief Enforcement Officer of
the Division of Water Supply and Pollution Control of the United
States Public Health Service. Mr. Stein comes to us with many years
of experience in this work. He has conducted hearings under the
federal act all over the country and has performed his job squarely
and fairly. I think he will have some rather interesting things to
tell us at this conference.
May I welcome you this morning and hope this conference will be
enlightening and will arouse public awareness in the problems that
we face In our Joint task of keeping Michigan's waters as clean and
as pure as humanly possible. For unless this is done, the phrase
"Michigan is a Water Wonderland" might have to be altered to "Michigan
is a Water Wasteland'"
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REVIEW OP MICHIGAN'S WATER POLLUTION LAWS AND ADMINISTRATION
By
Nicholas V. Olds
Assistant Attorney General
Scope ana Purpose;
One of the main objectives of this conference Is to explore
the legal aspects and problems Involved In the abatement and con-
trol of pollutional discharges into the waters of the State. It
Is hoped that by doing so, not only those of us attending this
conference, but the general public will have a better understand-
ing and awareness of the legal structure underglrdlng the enforce-
ment of our laws prohibiting the contamination of our waters.
We are all against pollution In the same way that we are all
against sin, but too often we give scant attention to the correla-
tive or reciprocal rights affected by the enforcement of water
pollution control laws. Because of this lack of understanding,
officials charged with the responsibility of administering water
pollution control machinery are too often unjustly criticized for
the apparent lack of action and results.
When Persuasion has Palled - Importance of Enforcement;
No public official having a proper sense of public relations
will precipitously and without adequate efforts of persuasion start
actions against a citizen or municipality of the State to compel
the elimination of a pollutional discharge. The language in both
our State and Federal statutes on this subject, either inferentlal-
ly or directly, requires the use of conciliatory machinery before
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230
putting into motion the wheels of enforcement. In the instance of
the Michigan Water Resources Commission, after an investigation
has revealed the existence of unlawful pollution, the person ©r
entity responsible is advised of the situation and every effort is
made to convince it to voluntarily eliminate the improper pollu-
tioi',a,t load imposed by him into the receiving waters. Although
the art of persuasion proves successful in many instances, we must
never lose sight of the fact that the agency administering the
pollution control of this State must always have the power to en-
force its decisions should no agreement be reached which would
eliminate the pollution.
In the words of Teddy Roosevelt, a pollution control agency
must always "speak softly, but carry a big stick. " Without this
residue of legal power, the efforts of a pollution control agency
can. flounder and its efforts be nullified so that the pollution of
the waters of the State continue merrily on.
Enforcement Tools Should be Kept Sharp -Juj^QftiatAJor^ Disputes and
Uncertainty Should be Avoided;
An agency charged with the responsibility of keeping the
waters of the State reasonably clean should be given adequate and
ample power to perform its public task. Its tools of enforcement
should be constantly clean and sharp so that there can be no mis-
understanding about its intention fully and fairly to enforce the
pollution control laws adopted by the State Legislature. Some
polluters would en.loy nothing better than protracted delays in-
volved in the settlement of Jurisdictlonal questions and disputes.
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One can Imagine the time and work that could be consumed in re-
solving a Jurisdictional dispute as to whether the State or the
Federal government had jurisdiction over the pollution situation,
whether the State agency or the municipality had Jurisdiction,
whether the administrative hearing complied with all the niceties
of due process of law, whether in fact (and this has been urged
in many of our cases) the State had any authority to compel a
municipality, for Instance, to cease discharging untreated wastes
in a particular river on the specious grounds that other munici-
palities and other polluters were doing the same. I have even
heard the challenge made by municipal officials to this effect:
"Well, the State has gotten its court order, now let's
see how it is going to enforce it«,"
Therefore, let us be clear about this. No pollution control pro-
gram of any state can be worth the paper on which it is written
unless there is precise, clear cut and unambiguous authority to
enforce the decisions that are duly and legally made by the pollu-
tion control agency.
Common Law Doctrine Affecting Abatement and Control of Water
pollution;
Although it may be rarely recognized, the fact remains the
common law had well developed legal doctrines by which pollution
of public waters could be either abated or controlled. The two
doctrines, 1. Nuisances, both private and publicji/
I/ The Doctrine on Nuisances is aptly expressed: "Sic utere tuo
~~ ut alienum non laedas," Use your own property in such a man-
ner as not to injure that of another.—Black's Law Dictionary
4th edition.
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2. The riparian right of reasonable use;
could be and were utilized in many cases to enjoin and prohibit a
polluter from continuing his unlawful practices.
Since each state of the Union Inherited all the sovereign
authority previously exercised under the common law or under the
civil law each state therefore has Inherent legal authority which,
if exercised, could and many times did control and abate pollution
of public waters which were of such a character as to amount to a
public nuisance. Also, every riparian owner on a stream or lake
has the legal right to Insist that other riparian owners desist
from contaminating the waters in such a way as to render them less
useful and in fact injurious to the complaining riparian owner.
Thus a riparian owner could make use of both doctrines, that of
private nuisances, and that of the right to the reasonable use of
the waters contiguous to his lands.
I shall illustrate the utilization of these doctrines in two
cases which reached the -Supreme Court of our State several decades
ago. '
In 1909, the Attorney General of the State of Michigan, on
behalf of the Township of Wyoming and the Village of Grandvllle,
filed a suit against the City of Grand Rapids for an injunction
to prohibit that city from continuing to discharge its raw, un-
p/
treated sewage into the Grand River. —'
During flood stages the Grand River would innundate and con-
17Attorney General ex rel Township of Wyoming v. City of
Grand Rapids, iT3lTicYP5O3
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233
taminate the land areas near these communities. The attorney gen<-
eral utilizing his common law powers filed a suit in the Superior
Court of the City of Grand Rapids to compel that City to abate the
nuisance which it was creating. Oddly enough the Superior Court
dismissed the bill of the attorney general but fortunately on ap-
peal the Michigan Supreme Court not only sustained the bill of
complaint but granted both a prohibitory and mandatory injunction.
In its opinion the Supreme Court laid down some very fundamental
principles that have been the loadstar of our State pollution con-
trol program ever since.
1. A municipal corporation has no greater right to pollute
the waters of a river or watercourse, or to create a
nuisance therein, than has any individual.
2. And if such a municipal corporation creates a nuisance
through the discharge of Its sewage into a watercourse,
it may be restrained therefrom.
3. There can be no prescriptive right to create a public
nuisance. Although such prescriptive rights can be oper-
ative against an individual riparian owner, it is never
operative against the public and no prescriptive right
comes into being to increase the discharge of pollutlonal
substances or to Increase the nuisance resulting.
4. The rights of the riparian owners on a stream to the use
of the water are property rights. Such rights cannot be
restricted, limited, or destroyed by permitting, through
statutory enactment or otherwise, a municipal corporation
to discharge its sewage into the river above them. Such
riparian rights can only be acquired through the exercise
of the right of eminent domain and by making full compen-
sation to the owner.
5. It is not essential that the nuisance create a condition
intolerable to the persons affected by it. If there is
a degree of annoyance to them, or public health is af-
fected,, an injunction will issue.
6. The fact that the health and convenience of one part of
the public, or of a particular municipality, will be best
subserved by discharging sewage into the stream consti-
tutes no legal defense.
8
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234
The mandatory order Issued by the Supreme Court occurred In
1913* "but it wasn't until the 20's that the. City of Grand Rapids
built a sewage disposal plant for treatment of its municipal wastes.
When the plant became inadequate in the 1940's, the Stream Control
o/
Commissions;.' issued an order requiring the construction of further
facilities. Palling to comply with this order, the attorney gener-
al filed a suit in the Superior Court for the City of Grand Rapids
for its enforcement, and shortly after the issuance of a decree on
April 24, 1952, the City of Grand Rapids did construct facilities
thafe were then necessary.
This is a prime example of the intelligent and successful
utilization by state officials of both the common law and statutory
powers and establishment of a body of legal criteria for the abate-
ment and control of pollution of the waters of the State.
The Application of Reasonable Use Doctrine
In Water Pollution Control
With the growth of industry in our State, the discharge of in-
dustrial waste soon became a serious threat to the maintenance of
the purity of our waters. As I have noted previously, the discharge
of pollutlonal substances in a stream or lake could cause serious
injury to lower or other riparians and there is an extensive body
of law for the redress of such injuries. Over the years, many suits
have been filed by private riparian owners for injunctions to re-
strain a harmful discharge of waste by an upper riparian proprietor.
The most notable case that reached the Michigan Supreme Court was
37Act 245, Public Acts of 1929
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235
Monroe Carp Pond Company vs. River Raisin Paper Company, 240 Mich
279, which occurred before the enactment of the Stream Control
Commission Act of 1929.
The River Raisin Paper Company began discharging paper wastes
into the River Raisin in Monroe County thereby depleting the oxygen
in the water to such an extent that all the carp belonging to the
Monroe Carp Pond Company died and rendered the pond useless. The
Pond Company filed suit for an injunction and for damages. The
Michigan Supreme Court in its opinion based its decision on language
from a Massachusetts Case, Parker y_^ American Woolen Company, 195
Mass 591;
"We regard it however as settle that no riparian pro-
prietor has the right to use the waters of a natural
stream for such purposes or in such a manner as will
materially corrupt it to the substantial injury of a
lower proprietor, or to cast or discharge into it
noxious and deleterious substances which will tend to
defile the water and make it unfit for use."
In discussing the law of reasonable use as between riparians,
the Michigan Supreme Court stated (page 285)
11 (b) The right to the use of the water in a stream
by a riparian proprietor is not absolute. It is a
natural right, qualified and limited by the existence
of a like right on the part of others. It is an in-
cident to the ownership of the land through which
the stream passes. The enjoyment of such use by a
landowner is prior to those below him, and subsequent
to those above him, on the stream. The water may by
his use be rendered unfit for many purposes for which
pure water is suitable, and yet the lower riparian
proprietor may have no Just cause for complaint, if
its condition results from a reasonable use thereof
in accordance with the common right."
10
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236
However, in deciding whether to grant the injunction to re-
strain the River Raisin Paper Company from discharging paper wastes
into the river, it utilized another doctrine known as "balancing
the equities." Indicating that under the common law the issuance
of an injunction is not a matter of right but a matter of grace,
the Court reviewed the comparative economic importance of these
two commercial enterprises to the community of Monroe and found
that the economic impact of the paper mill was far superior to
that of the carp pond operation. In those days the Court was also
faced with the fact that the science and technology of waste dis-
posal had not yet advanced sufficiently to enable the paper mill
company to render the waste innocuous. In fact the Court in its
opinion observed that there "is no way in which these wastes can
be treated and purified on their own premises ao as to permit the
plants to be operated with reasonable profit." Consequently, the
Court refused to issue an injunction because to do so would put
the paper company out of business. As an alternative, by finding
that the pollution of the waters was unreasonable and a wrong, it
awarded full damages to the Carp Pond Company. May I hasten to
say at this juncture that under our Water Resources Act so called
"economic feasibility" is not a factor. The statute defines what
is unlawful pollution and authorizes the Water Resources Commission
to order a cessation of the discharge of any substance into the
waters of the State which violate this definition. The Water Re-
sources Commission may but need not consider the economic feasibil-
ity of either abating or restricting a discharge of substances
which violate the definition.
11
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23?
Statutory Enactments;
State Health Commissioner Authority
The first significant water pollution control statute in Michi-
gan was Act 98, Public Acts of 1913* which was fundamentally amended
by Act 219 of the Public Acts of 1949. The purpose of this statute
was to vest in the State Health Commissioner supervisory authority
over the construction of water supply and sewage disposal systems
by municipalities. This law had its genesis in a long history of
epidemics attributable to water-borne diseases. Its chief purpose
was to authorize the State Health Commissioner to examine and ap-
prove plans submitted by municipalities for the construction of
sewers, sewage plants or water supply systems so that they would
be designed and function in a manner which would prevent occurrences
of water-borne disease epidemics. Under this act, the State Health
Commissioner has authority to refuse to grant extensions or addi-
tions to a sewer system when in his judgment the municipality is
not adequately treating the sewage then being delivered to its sys-
tem. It was this prohibitory authority which the State Health
Commissioner exercised several years ago when he placed a "ban" on
all additional sewer connections proposed in various parts of Wayne
County. His refusal to lift the "ban" brought on a rash of law
suits between subdividers and municipalities in Wayne County in
which the State Health Commissioner was named a party. Out of this
maze of legal complexities there came into being agreements among
municipalities, including Wayne County, with respect to the con-
struction of additional sewage disposal facilities. Thereafter,
the Commissioner lifted his "ban" against the extension and con-
12
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238
structIon of additional sewers.
But, I want to note here the important part that the law played
in this situation and particularly call your attention to the fact
that it was not until the State Health Commissioner brought out his
l>!big stick" by imposing a "ban" that the Gordian knot finally was
cut. The result was that municipalities came to agreements which
brought about Joint participation in the construction of much needed
additional sewage disposal facilities.
At this point mention should also be made of the fact that the
act under which the State Health Commissioner functions makes no
provision whatever for the control, regulation and abatement of
waste from industry or commercial establishments. His authority
is restricted to the supervision of municipal functions in this
field and then only when the public health is involved.
Creation of Stream Control Commission
State wide concern over the extensive pollution of our waters
engendered enactment by the State Legislature of Act 245, P.A. 1929
which created the Stream Control Commission. This body was made up
of the director of conservation, the state health commissioner, the
state highway commissioner, the director of agriculture and the
attorney general. It contained a definition of unlawful pollution
and authorized the commission after conducting a statutory hearing
to issue orders controlling and regulating the discharge of pollu-
tants. An appeal from the commission's orders was permitted to the
Courts, and it authorized the attorney general to start such actions
13
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239
as were necessary to enforce the orders of the commission. By the
device of designating the heads of various state agencies as ex-
officio members of the commission, the legislature brought about co-
operative efforts among existing state agencies to abate the pollu-
tion of our waters. With limited budget this commission assembled
a staff and worked diligently during the 1930's and 19^0's in making
investigations, issuing orders and securing court enforcement of
those orders. Shortly after its organization, Mr. Milton P. Adams
became its executive secretary, and as we all know, Mr. Adams has
carved for himself a national and international reputation in this
very important aspect of keeping our waters reasonably clean and
pure.
One of the most important series of cases the Stream Control
Commission spearheaded were the so-called Port Huron Cases. Before
the beginning of World War II the City of Port Huron had refused to
comply with an order issued by the Stream Control Commission to
"proceed with the construction of a sewage treatment
plant and the necessary collecting and intercepting
sewers, pumping stations, force mains and other ap-
purtenances in connection therewith, all when and as
approved by the Michigan Department of Health to per-
mit treatment for the sewage of the City before its
discharge to state waters.
Again like in the Grand Rapids Case, the lower court turned
down the suit filed by the attorney general for the enforcement of
the commission's order. This of course was reversed by the Supreme
Court and in doing so the Court laid down some rather important
guide lines, such as:
"It is no defense to a statutory charge of river
water pollution that others have contributed or
are contributing to that condition.
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240
"In proceeding to compel city to construct a sewage
treatment plant and to stop discharging raw sewage
into adjacent rivers wherein city claimed other cit-
ies were also polluting the waters, the doctrine of
comparative injury is inapplicable since it should
be confined to situations where plaintiff can be
substantially compensated, (l Comp. Laws 1929* Sec.
278, et seq.)
"The doctrine of comparative injury should not be
invoked to Justify the continuance of an act that
tends to impair public health.
"Alleged financial inability of city to comply with
stream control commission's order to construct a
sewage treatment plant and to cease polluting rivers
by discharging raw sewage therein is no defense to
such order, since a city has the power to raise
monev by taxation, (l Comp Laws 1929, Sec. 278, et
seq.)
"Pact that war conditions make it more difficult for
a city to comply with order of stream control com-
mission to construct a sewage treatment plant and to
cease polluting river waters by discharging raw sew-
age therein merely affects the time within which
there should be compliance with the order, (l Comp.
Laws 1929, Sec. 278 et seq.)"
But, this did not end the batrble for the City of Port Huron
was faced with a serious financial situation. When the treasurer
of the City of Port Huron refused to sign the bonds to be issued
for the financing of the ordered facilities, the Mayor filed a man-
damus action to compel him to perform his duty. The issue was
whether the city had legal authority to borrow money which would
require the levying of taxes in excess of that authorized by the
statutes or charter. In its opinion, the Supreme Court made it
abaundantly clear that in this Instance the City was performing a
task which it had been ordered to do by court decree, that its re-
sponsibility was not a local one but "was for the protection of the
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people of the State ©f Michigan. It transcended local purposes."
Consequently the court stated that it was no longer necessary for
the city t© submit the question of issuance of the bonds to the
electorate because the people in their collective capacity in a
municipality had no more right to pollute the waters of the State
than an individual citizen. This landmark case cleared the path
for the financing of the construction of sewage disposal systems
by municipalities pursuant to a court order, and in financial par-
lance, these bonds became known as "court order bonds." In fact,
they commanded a much more favorable rate of interest than either
general obligation or revenue bonds. Thereafter, no municipality
could complain that it did not have the financial ability to issue
bonds for the construction of these works. Many of our suits against
municipalities for the enforcement of commission orders have been
mainly for the purpose of enabling municipalities to issue "court
order bonds." It was due to this financial breakthrough that many
of our Michigan municipalities have been able t© construct sewage
disposal systems for the first time in their history and it has
not been necessary for the state as such to provide financing for
this purpose.
Creation of Water Resources Commission
In 19^9 the Legislature amended the Stream Control Act ©f 1929
in various respects. It not only changed the name, but expanded
the membership to Include 3 citizens appointed by the Governor, 1
from industry, 1 from municipalities and 1 from conservation organ-
izations. The attorney general was dropped as a member. A new sub-
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242
section was added to Section 8 which required the commission's ap-
proval before any person could make a new and additional use of
the waters of the State. This broadly based commission organization
has worked effectively and well since control and abatement of pol-
lution of our waters affects a great variety of uses and interests.
Miscellaneous Statutory Authority
Although the State through its agencies has been active in the
prevention of the pollution of the waters of the State, the fact
that authority of a similar nature exists in municipal entities
must not be overlooked. For Instance, townships, incorporated vil-
lages, fourth class cities, home rule cities, drain commissioners
and other political entities have authority in one form or another
to prevent the pollution of waters existing within their territorial
limits. It is not my purpose here to delve into the details of this
authority because it is expected that other people on the program
V
will do so.—
Const itut ional Limitat ions:
A brief word should be said about the requirements and restric-
tions of both the State and Federal Constitution affecting the issu-
ance and enforcement of administrative orders. Our State's 1963
Constitution specifically grants the right of appeal from the issu-
5/
ance and enforcement of an administrative order.— The Administra-
6/
tlve Procedure Act— as well as the provisions of the Water Resources
V See Act 24t> p.A. 1945, as amended by Act 55, P.A. 1959.
5/ Article VI, Sec. 28, 1963 Constitution.
6/ Act 197 of the Public Acts of 1952.
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Act very specifically require the holding of hearings before the
issuance of any order. The due process clauses of both the State
and Federal Constitution would certainly apply to the issuance of
orders and the prerequisite of a proper and adequate hearing. It
should not be forgotten that whenever a state agency imposes a re-
striction on the discharge of pollutants in a body of water, it is
dealing as was stated in the Monroe Carp Pond Case, with the prop-
erty rights of riparian owners and to the extent these property
rights are being affected by any order, the greatest care should
be exercised in the conduct of hearings followed by the issuance
of proper and legal orders.
Administrative Machinery and Procedure;
The Water Resources Act, as amended, defines unlawful pollu-
tion in Section 6, and Section 7 sets up the procedure for hearings
and the issuance of orders. Section 8 (a) provides for the method
of appeal from an order of the commission. Also rules of procedure
were adopted pursuant to the Administrative Procedure Act, Act 197
of the Public Acts of 1952, and every effort was made in adopting
these rules to afford the alleged polluter with a fair and impar-
tial hearing. When the commission believes that the hearing will
be a protracted one, it may be referred to a hearing representative
who will make a record and return it to the commission with his
findings of fact and conclusions of law. Based on this record the
commission will hear the whole matter and make its final determin-
ation.
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Enforcement of Commission Orders by Court Proceedings;
The attorney general by general statutory enactment has the
authority t© file any proceedings in any court for the enforcement
©f the laws of the bate. The Water Resources Act as amended
specifically authorizes the attorney general to enforce the orders
of the commission. Many suits have been filed over the years to
enforce the orders of both the stream control commission and its
successor, the water resources commission. Of course, it should
be emphasized that in many cases compliance with these orders was
made without the necessity of filing a court action. A list of
such cases would be too cumbersome to append, but details could
be secured from the offices of the attorney general and water re-
sources commission. I am appending, however, tables indicating
the number of administrative orders issued by the commission against
industry and municipalities and the number of conferences and hear-
ings conducted by the commission from the year 19^9 to date.
Recent Amendments to the Water Resources Act and Their Significances
I will not go into great detail, however, I do want to empha-
size tw© aspects of these amendments. The definition of unlawful
pollution in Section 6 has been considerably expanded. Specific
mention is now made to injuries
"to domestic, commercial, industrial, agricultural,
recreational or other uses which are being or may be
made of such waters or which is or may become injuri-
ous to the value or utility of riparian lands."
By this language we can reach and abate potential pollution. It
need not be shown that the polluter is actually discharging a sub-
stance, but if he Is about to do so, his actions can be halted
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before the Injury occurs.
Subsection (b) was added to Section 6 making it a matter of
prlroa facie evidence that the discharge will violate the act if it
consists "of any raw sewage of human origin." This subsection also
Imposes upon municipalities, such as cities, villages and townships,
a responsibility to control the discharge of human sewage by any
of its inhabitants. In too many Instances, municipalities would
raise the defense that it was the inhabitants, directly through
their septic systems, who were discharging the offensive sewage
rather than the municipality through its sewer system. Inasmuch &s
these municipalities have police powers and can pass ordinances reg-
ulating public health and safety, they ought to be made responsible
for what their Inhabitants do to the waters of the State.
Section 10 Is a new section which incorporates in statutory
language what we have been doing under the common law, that is,
compelling polluters to pay damages for the injury which their act
occasioned to fish and wildlife. The conservation department with
the assistance of the attorney general's office during the past 15
years has been collecting damages of this kind. What the Legisla-
ture did by adding this section is ratify in statutory form the
common law authority to collect such damages.
Control of Pollution of International Waters:
Since Michigan has a long international water boundary with
Canada, we have had many Instances of pollution of these waters of
a transboundary nature. The Boundary Waters Treaty of 1909 between
the United States and Canada makes it unlawful for one country to
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246
pollute boundary waters to the injury of persons or property of the
other. But the treaty sets up no machinery for the enforcement ©f
this provision. By various references this international body has
made investigations and recommendations for control of the pollu-
tion of these waters. By and large these recommendations have been
carried out by the use of the authority of the States and Provinces
concerned and the commission maintains boards to constantly study
and review progress and new problems as they arise. In 1961 the
International Joint Commission issued a brochure entitled "Safe-
guarding Boundary Water Quality—A Cooperative Effort Between United
States and Canada Under International Treaty" describing the work the
International Joint Commission had done. Recently the IJC received
a reference to study and make a report on the pollution of Lake
Erie containing recommendations for measures to be taken by the two
governments t© reduce the pollution of this lake.
Conclusions
This, in brief and In fact in very inadequate form, is the
legal history of water pollution control activities of the State
of Michigan so that Its waters will be preserved and protected not
only for the present but for future generations. We have done a
fairly good job, but we cannot rest on our laurels. Pollution of
the waters of the State takes on many shapes and forms. We must
continue to exercise our best and most diligent efforts in this
task of preserving the purity and quality of our waters upon which
man's continued existence and civilization so much depends.
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247
WATER RESOURCES COMMISSION
ADMINISTRATIVE ORDERS
FINAL ORDERS
YEAR
1949
1950
1951
1952
1953
1954
1955
1956
1957
1958
1959
I960
1961
1962
1963
1964
1965 to date
TOTAL
INDUSTRIAL
5
5
9
6
11
26
29
25
20
28
25
73
73
71
81
78
565
MUNICIPAL
5
8
2
1
2
1
2
1
1
2
4
5
20
29
7
90
INDUSTRIAL
3
7
16
2
2
6
2
1
3
1
1
3
47
MUNICIPAL
6
34
23
14
2
2
5
4
2
1
2
3
3
101
22
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2*8
WATER RESOURCES COMMISSION
NUMBER OP
NUMBER OP
STATUTORY & PUBLIC
-L.Lum.iv
1949
1950
1951
1952
1953
1954
1955
1956
1957
1958
1959
I960
1961
1962
1963
1964
1965 to date
9
89
49
15
32
38
47
15
11
17
24
11
11
4
20
13
42
12
36
21
21
9
5
3
2
8
6
14
3
6
8
2
10
TOTAL
447
166
23
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THE ROLE OF THE LEGISLATURE IN ABATEMENT OP WATER POLLUTION
By
Joseph M. Snyder, Chairman
House Committee tm Conservation and Recreation
Attorney General Kelley, distinguished panelists, guests and
delegates; my subject today is "The Role of the Legislature in
Abatement of Water Pollution." I do hope my views do represent
the composite point of view of many Individuals charged with the
serious challenge of fostering legislation to correct a festering
problem, and one that is growing at a constantly accelerating pace.
The legislature if it is to be successful in its efforts must
keep itself apprised of public desires. In abating water pollution,
as in many other issues, it is important to equate the attitudes of
the general public and the special interest groups. This is no small
task, for there are many different attitudes and many degrees of in-
tensity in those attitudes. Often times some of the attitudes and
conclusions are based on emotion and misinformation, making the
problem and its solution more complex and difficult.
"Water pollution" is an expression most of our citizens use in
the same sense as they do "motherhood", the flag, and the good old
college alma mater. No one disagrees and it is the right thing to
say now days that we must keep our waters from becoming polluted.
However, most people have no particular interest in water pollution
abatement until they are personally affected and then they may
demand to know, why their problem wasn't anticipated and prevented
by appropriate legislative action. It's difficult to convince them
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250
that it's easier to prevent water pollution than it is to correct
the resulting widespread damage.
While many of you in this assembly have been pioneers and voices
in the wilderness, water pollution control has only recently assumed
major importance in the public mind and even yet there are many
people who are only mildly concerned and yes, there are even those
who have an uneasy feeling when confronted with circumstances that
will require new laws, new methods and new restrictions.
There can be many conflicts raised even in a legislator's mind
when approached by the divergent interests — shall he give credence
to the relatively few who sometimes represent the special interest
groups or shall he give weight to the opinions of the contacts ex-
erted by the general public. Yes, a legislator must be aware of
all these immediate interests; a legislator must also be a man of
vision and look beyond tne immediate problem or beyond even the
immediate normalcy and well-being in a given situation.
With this great diversion of opinion and variety of thought,
a legislator may be hard pressed to determine what he can believe
and of what he can defend or to the extent he must compromise to
gain his objective. Too often, a distinction must be made between
that which is attainable and that which is ideal. Really, that is
the problem that confronts us today in the area of water pollution
abatement.
At one extreme are those who honestly advocate putting our
streams and waters in such a state of purity that one can safely dip
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251
and drink from them. At the other extreme are those who believe even
our present restrictions? are confiscatory. Who is right — probably
neither. We then as legislators, must pursue a course that will re-
sult in a preservation of our resources and enjoyment of life -- yet
one that will also protect our economy and provide for life itself.
Too long the emphasis has been on economic interests and now
we must provide the essential balance and correct some of our past
errors. How fast can improvements be made? What will happen if too
drastic legislative action is taken? What will happen if strong
enough action is not taken? These are the decisions we must make.
The legislator must keep himself as well-informed as possible
within the limits set by the total range of demands on his time.
Our legislative sessions give us a variety of subjects, ranging from
astrology to zoology. It is not unusual to debate the coordinate
points of the earth, brucellosis and bangs disease all in the same
afternoon. I don't claim to be an expert on all these subjects but
I do know where to find the answers. Not only do we rely on our
committee system, but we can turn to our resource people and admini-
strators for help. I'm nor the least bit hesitant in picking up the
telephone and asking Nick Olds or i^oring Oeming for advice when the
waters get a little cloudy. They represent a good many years of
collective experience and Judgment. My Job is to translate their
wisdom into workable statutes — laws that will protect the public
trust and interest.
Once the die is cast, the legislator must convey the substance
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of his knowledge and efforts to his constituents and defend If
necessary the action he takes. Very rare are the Instances when a
new law is acceptable to everyone. Like some medicine, it is
bitter to take but the results are good once we are persuaded that
the medicine must be swallowed, and water pollution abatement is no
exception.
In arriving at his decisions, the legislator must also balance
the many pressing needs of the State with its finances. He must
allocate for the administration of water pollution control recog-
nizing that there are also serious unmet problems In Mental Health
Education, Public Health, and other areas. Sometimes even his best
laid plans are disrupted by expected and unexpected executive vetoes.
We must be willing to seek new methods and new techniques in
our legislative processes. Because of the wide range of the uses of
water, a variety of bills are Introduced at each session and referred
to different legislative committees.
During this past year we had water bills referred to the Con-
servation Commi'ttee, the Judiciary Committee and the Committee on
Public Health. This procedure makes it difficult to coordinate
objectively and it is quite possible for Inconsistencies to develop.
Some method of coordination of water resource bills may have to be
found. In the reorganization of the Executive Branch of govern-
ment, this problem was recognised and the Water Resources Commission,
the State Waterways Commission and the Boating Control Commission
were all put under the cloak of the Department of Conservation.
We must also provide for continuity of thinking on matters of
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253
Water Conservation and Control. A state policy on water resource
development and control could be identified by the legislature as a
guide to future legislatures and administrators. Such an effort
might well include a review of existing water resource legislation
to determine any necessary appropriate revision.
A legislator must be knowledgeable of the efforts of government
at all levels in abating water pollution. I'm sure that we have in
this assembled group, representatives from townships, cities, counties,
the state and federal governments. In each of these units there are
activities in water resource management that must be coordinated.
And in each we hear familiar phrases such as biochemical oxygen
demand, nutrients, effluent discharge, etc.
Government must be willing to accept and encourage voluntary
efforts if it appears that these are sincere and effective. If ever
there was an endeavor worthy of a tripnafcite effort this is it. In-
dustry, Government and the Citizenry can 'all Join in the drive to
abate water pollution. There is enough work there for all. We must
pool our knowledge and finances. Too many splinter programs will
defeat their own purposes.
And now, I would like to depart from my script for a few minutes
and relate a few recent personal experiences.
This past summer, without too much fanfare and pbblicity, our
committee in the House made a concerted effort to study water pollu-
tion. We took a boat trip up and down the River Raisin. Ladies and
gentlemen, let me tell you that you must see to believe the condition
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254
of that water. It was impossible for any form of life to survive
there. Not only do we have a problem in the River Raisin, but this
river empties into the beach along Lake Erie where we have one of
our finest state parks, one of the most beautiful sand beaches in
the State of Michigan and in the country —and this beach is un-
usable. The nutrients added to the water create an algae growth
that destroy not only the wildlife and fish, but they create a
condition on the shores that make them unusable.
I had the experience the other day of looking at the other end
of the pendulum. I went to Alpena and saw the efforts of the Atlbli
Corporation. They were voluntarily putting millions of dollars into
a program that will attempt to control water pollution. I found out
a real exciting and interesting thing on this trip. Their efforts
were not completely successful because when their water was finally
processed to the best of their ability, an organic substance still
remained which could only be removed by the addition of nitrogen,
and obviously this would create an additional nutrient and create
further problems. However, it was pointed out to me that the City
of Kalamazoo has now embarked on a program in cooperation with its
paper mills in which there will be a cooperative effort, and the
nitrogen necessary to remove the organic substance will possibly
be derived from the sewerage used in the Kalamazoo disposal plant.
This is an exciting solution because it solves two problems.Probably
we can't be overly optimistic, but I'll tell you that as long as
there is the sincerity and the desire to work out problems oetween
these two groups, perhaps we can come up with a solutidn and I
assure you that our committee will be going up there to look over the
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255
problem.
House Concurrent Resolution No. 150 has been passed in the
House and Senate and both Senator O'Brien, the chairman of the Senate
Conservation Committee, and I are members of this joint committee.
We feel this will be one of the most important committees we will be
asked to serve upon, and I am looking forward to getting into the
problem of water pollution. I might point out that many industries
are making an effort to voluntarily correct water pollution. The
oil industry, paper mills, and recently I read an article in the
official Michigan magazine, that even Chrysler has now developed a
process in which they will burn their wet solids. These are new and
dramatic processes available to us. As a legislator, I would welcome
any practical ideas this assembled group may have, because remember
that a good bill in its final form is a simple idea fostered by an
individual such as yourself. All we do to your ideas is to add a
little parsley to make the banquet plate look attractive. Give us
the ideas and I tell you that we have an enlightened legislature
that is looking forward to working with the attorney general's
office and many groups in the state to resolve the matter of water
pollution. In essence, I feel this is the responsibility and the
role of the legislature in the abatement of water pollution.
Thank you.
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256
THE ROLfc. jt THE LEGISLATURE IN ABATEMENT OP POLLUTION
By
Senator Carl W. O'Brien, Chairman
Senate Committee on Conservation
Well, I'm going to be mercifully brief. You have Just listened
to three politicians, two lawyers and Frank Kelley doubling in brass
and I know that the human soul, not to mention the human behind, can
take only so many politicians and so many lawyers in a row. I'd
like to tell you a few little things. I am not an expert on any of
this. I see a lot of you experts out there — people from TroutjUnltd,
people from the conservation clubs, city managers. In fact, I get
the feeling I know about half of you. You know it's an ominous feel-
ing, and I am speaking time after time to pretty much the same people.
I have said this so frequently. Speaking in the area of pollution —
in fact I see the city managers of a couple of cities I represent, so
maybe I better watch what I say.
Next time I am going to introduce a bill which will restore the
language that was kicked out of Senate Bill 69. Senate Bill 69 was
two or three different bills over the year. In the beginning when
the bill was put in, some fellow had a little lake up in one of
these counties. He thought it was polluted and he grabbed a section
of the law and wrote a bill which said you can't do that. It wasn't
much of a bill but it was a good vehicle for changing the Water
Pollution Act of 19^9. I called Nick Olds and asked if he could
come over to my office and talk to my committee. We have a little
water pollution discussion going on, and in less time than it takes
to tell you, Nick Olds was there. We said, "Nick, with your 20 years
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257
of experience In the courts, would you tell us what you think would
be the ideal bill for water pollution — the best bill of any state
in the United States? Do you have any solution?" And Nick said, I
just happen to have a few hundred thousand words on the subject."
Indeed he did, and he educated us.
There was one phrase in that bill which was very dear to me.
It said something like — any substance you put in the water which
changes the chemical, physical or environmental characteristic of
the water is pollution. That didn't last long. You know, maybe if
you start the ideal bill — the ideal situation — then you get a
pretty good bill. And I think that's what we did this year, because
one by one the people whom this bill would affect, came and made their
recommendations, some of them rather heatedly, some of them quite
logically, and told us what aspects of the bill they couldn't live
with. This is good. This is proper lobbying.
I think the important thing the legislature did this year was
that it said to municipalities, to industry and to every septic tank
home owner in this state — all at once we are aware of this pollution
problem and if it is not stopped, get ready to stop because we can't
live with it.
In the old days of history, I understand civilization Just
picked up and moved when a place became polluted. The evidence is
there for you gentlemen who know the ancient history of the world.
The evidence is still there, and I can tell you by the leavings of
humanity, how many years, how many decades, how many centuries these
people lived in one spot. What is the history of the United States
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258
going to be? Indeed, the Western World?
As I remember the passage of Senate Bill 69* there was a long
fight, and an Interesting thing^ happened. There was> a man from In-
dustry who was fighting watex* pollution. They won't listen to it.
It costs too much money. It wasn't efficient. It wasn't necessary.
There was the river and if you put '-stuff" in it, there it goes.
And that's the way he liked it until finally with civilization and
culture moving in on him, industry and cities and municipalities,
when the water got down the stream to his Industry, it was so polluted
he couldn't use it in his own plant. And then he said — "What's
wrong with you guys in the legislature, why didn't you do something?"
Because, then it was his problem. It wasn't his problem as long as
somebody was drinking it or trying to use it for recreational pur-
poses, but when at last he couldn't use it in his own plant, then it
became a personal problem. I think this is what really has to happen
to all of us. This man was no more selfish, nor more ignorant than
you or I. Some of us live a little closer to the problem because it
has affected our favorite sport. We see the streams. The fish go
out. Attorney General Kelley has a photograph here which shows many
dead fish. We see this happen all over the state. Those of us in
conservation know It all the time. We hear about it every time it
happens. Unlimited examples, a man like Nick Olds could give you.
Absolute death through pollution.
When I was a kid I swam in a lake, lived on a lake, right in
the middle of the city. During the last election that lake smelled
so badly that everybody in public office could not sleep at night
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259
because of telephone complaints about the smell. So, we had the
Water Resources Commission come down and look at the three lakes
that were affected and they found a heavy influx of industrial oil.
I could have told them that because when I was a teen-ager, one of
our favorite pastimes, there was so much industrial oil on one of
those lakes, was to go down with some of the kids and set fire to
the lake. Ever see a burning lake? There were other industrial
wastes in it — raw domestic sewage — I forget the \exact chemical
analysis, but I am sure it must have taken a long time, there was so
much "Junk" in that lake. And now, of course, that city like three
other communities in the area I represent, received their orders —
stop — make a change. Change the bad sewer systems, the old com-
bined sewers.
So now we come to the crux of the problem — money. The state
has recognized its responsibility when it said, as it did in Senate
Bill 69 this year, as it is going to keep on saying by strengthen-
ing these pollution laws, to municipalities — "Stop polluting our
inland lakes and streams." Now, the state must take the next logical
step.
There are communities which, quite frankly, are hard pressed to
live up to these orders and yet it must be done. So what is the
state to do? The state must somehow arrange financial aid to com-
munities such as the Village of Lake Orion. This small village has
to construct a million and a half dollar sewer system, and it has
400 taxpayers. Divide that million and a half plus the interest on
it into 400, and it is going to cost several thousand dollars for
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260
every home owner in that village. They will be paying more than their
homes are worth. If the state does not recognize its responsibilities
to these communities after it has told them what has to be done, then
the state is negligent. And I want to tell you something. I don't
think this legislature was that klnc I was very happy this year —
very happy — to see the grade of men that came to the legislature,
like Representative Snyder, men knowledgable, well informed. I think
I got a college education this year and I got one in pollution, I'll
tell you that. So, I think one thing we are going to have to do is
study the financial implications of our fight against pollution, and
you are the people who are going to have to help us. You know where
we came from. We came from ward politics. We are not Ph.D's when
we get up here. But, maybe when the politician does get here, it is
because he has an instinct for doing What those communities and
what this state feels should be done. And I think now the sentiment
is ripe for doing the thing. A war has begun and war is expensive.
We have, as a matter of fact, appropriated fifty thousand dollars
from the Senate. The House appropriated fifty thousand dollars and
the federal government matched it with one hundred thousand dollars
so people like Representative Snyder, myeelf and the other legis-
lators who will serve on this commission could have a director and
staff to study in depth and detail the problems of the communities
and industries of the State of Michigan.
Well, ladies and gentlemen, and I'm happy to see there are some
ladies here because when matters of public health and the welfare of
the community come into being, I notice the ladles are generally
more effective than those of us of the male sex, so I am happy to see
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that there are a few women here today and they are becoming interested
in what programs may be developed to fight pollution in this state.
I would like to leave you with a thought — there are eight
million little polluters in the State of Michigan today and in twenty
years there are going to be fifteen million of us. So this is the
battle we have. Thank you.
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MUNICIPAL RESPONSIBILITIES IN WATER POLLUTION LAW ENFORCEMENT
By
Louis C. Andrews, Jr., Staff Attorney
Michigan Municipal League
Cities and villages have been on the firing line in all phases
of battle against water pollution arising from sewage disposal for
the last quarter of a century. This is not at all surprising as
a city government is simply an organization designed to help large
groups of people assembled together to function in an orderly and
rational basis. When you have large groups of people together, the
problems and responsibilities naturally follow and guarding against
water pollution is certainly one of the most important.
The difficulty arose in the first place because all of us had
to be reoriented on the need for sewage treatment. In former years
once the sewage was waterborne and beyond the city limits it became
somebody else's problem. This is no longer the case, of course. Now
we want to avoid contaminating the water to such an extent that it
cannot be used by others and to prevent the destruction of natural
resources which are of prime importance to the state and country.
The agency that redirected Tnunlcipal thinking along thetie lines
is beyond question the Water Resources Commission. The state pro-
vided the "strong arm" to redirect municpal thinking along these
lines, but unfortunately it never did provide adequate means for
cities and villages to finance the huge sums necessary to provide
adequately for sewage treatment. In many cases municipal sewage
works were financed by virtue of court order bonds as authorized by
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Public Act 320 of 1927. Once the court has ordered tbe installation
of the sewag^ works, the city or village Is required to install it
and may, when necessary, finance it by the issuance of general
obligation bonds over and above its normal bond limits, This sounds
like an excellent solution to the problem, but I am afraid that in
a great many cases the financial capabilities of some of the smaller
cities and villages affected suffered greatly.
As an example, recently a village of some 1800 persons in-
stalled a new system costing $630,000. This worked out at about
$350 for each man, woman and child within the village. Not only
that, it constitutes an expenditure equal to 25# of the assessed
value of the village. This is a tremendous sum, As you well know,
a village is limited in its tax rate to one and three-quarters per
cent per year of its assessed value. Here we have one single expen-
diture which is the equivalent of the total tax expenditure for a
period of some 13 years.
Although this act includes counties as well as cities and
villages within its scope, so far as I know there has never been
any attempt to require a county to install a sewage treatment plant,
nor would we expect the problem to be attacked from this direction
normally. The centers of population are the ones that are primarily
the generators of sewage, they are the ones that should be re-
sponsible for installing sewage treatment plants, but they should
receive all possible assistance in this endeavor from the state.
This has been the direction in which municipal efforts have
been directed. We have had no great problem in regulating the
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acceptance of sewage wastes. Principally in the recent past the
emphasis has been upon the construction of treatment plants, and
although I have no special knowledge in this particular field, it
would seem to me that the record of Michigan cities and villages
should be admired throughout the United States. We now have no city
or village over 5,000 population which does not have at least a
primary sewage treatment plant. As I have indicated, the expenditures
for this purpose have been huge and they have been steady for the
last approximately 30 years with the exception of the wartime years
when the materials were not available.
I note during the same period of time that thpre does not seem
to be quite as much progress made on a national basis. One recent
article indicating that in 19^2 there were 75,000,000 people in the
United States served by sewage treatment plants and that today
118,000,000 are served by sewage treatment plants. However, during
the same,period of time the population which is without sewage treat-
ment has also increased — 60.6 million in 19^2 to 68 million in 1962.
Thus I think when we in Michigan can say that substantially all of
our urban population is served by sewage treatment plants that we
are entitled to at least some feeling of satisfaction, even though
we realize there are many problems yet to be solved.
As I have previously indicated, the enforcement of municipal
regulations regarding the disposal of Sewage is generally not solved
as a legal question, but rather on the administrative level. In
other words, if it is possible for the sewage treatment plant to
treat the sewage or industrial waste, then the municipality wants
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to be able to accommodate the producer of the sewage or waste. How-
ever, cities have had detailed ordinances governing the subject of
sewage disposal for a considerable number of years. A Committee of
the Michigan Municipal League studied the model sewage ordinances
which were available in 1952 and produced their own recommended
version. This has served as a forerunner and guide to many munici-
palities in their own sewage disposal ordinances in the interven-
ing years.
This type of ordinance is primarily concerned with:
1. Requiring a sewage connection
2. Regulating the construction and placing of the connection
3. Regulating the type and quantity of waste received.
Subsequently, many cities have been interested in further pro-
hibiting the introduction of storm waters into sanitary sewers. Also
we find that many engineers would like to have these ordinances spell
out the restrictidns:- on what may be placed in the sewers in greater
detail. Some of the prohibited uses can actually be permitted, they
point out, if the waste is allowed to enter the sewers in small
controlled quantities. This presents us with the age old problem
of making the prohibition sufficiently simple and definite to satisfy
legal standards for a penal statute and at the same time recognizing
that there may be exceptions which can be made under certain circum-
stances. Where waste requires special treatment, most of these
ordinances meet the situation with what might be called an "escape"
provision. This is the provision which authorizes special agreements
for the treatment of such waste for extra compensation.
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One of the reasons that there is little difficulty in enforcing
these ordinances is that the producer of waste which may cause a
problem is usually of a size or character which makes him stand out
like a sore thumb. In checking this source out, it is the usual
routine matter and it can readily be determined whether it will be
necessary for him to develop a preliminary treatment facility,
whether a special agreement for extra treatment expense will be
necessary, and so forth.
Occasionally when a sewer line is first extended someone who
already has a working septic tank will object to the requirement
that he hook up to the new sewer. This is usually more of an annoy-
ance than a serious threat to enforceability of the ordinance. This
is usually a matter of public relations more than anything else.
We are trying to make this sewage treatment ordinance a little
more elastic by adding what we sometimes call an escape provision,
that is a provision for a special agreement to treat wastes which
do not conform to the requirements of the ordinance. In other
words, if an industrial plant, plating plant has a waste which is
too highly acid, we might make a special agreement with that in-
dustry that will treat it but they will have to pay a sur charge
for the privilege of dumping it into the sewage system. There
have been other developments in this sewage ordinance in recent
times, and you will find in the most modern ordinances, some addition-
al provisions. They relate primarily to the placing of the wastes
in the system which contain certain metals, and the ones that I see
most frequently have certain parts per million of iron, zinc, cyanide,
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267
copper or chromium. Among other additional prohibitions which haye
recently come into vogue in a number of ordinances is the restriction
against using any radio-active wastes in the system. All of the
ordinances contain the usual prohibition against dumping in wastes
that are too hot, too greasy or that contains flamable liquids or
which contains solids large enough to obstruct the sewer. I think
that indicates pretty well what the ordinance enforcement possibilities
are in the cities and villages.
Summing up, I would like to point out to you that although the
municipalities can't take too much credit for the initiative in this
field, the initiative is all with the State, Nevertheless, they have
taken it tremendously forward in the past 25 years and have expended
huge sums of money in order to provide treatment for industrial
wastes. Secondly, I would like to point out to you that the tendency,
the direction in which municipalities are going as far as enforce-
ment is concerned, is to provide whatever treatment is necessary to
take care of the wastes generated. There is no tendency so far as
I can see to attempt to prohibit the generation and dumping of this
waste into the treatment plant where if at all possible they will
accept and treat it. Thank you.
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TOWNSHIPS' RESPONSIBILITIES IN WATER POLLUTION LAW ENFORCEMENT
By
Joseph A. Parisl, Jr., Executive Director
Michigan Townships Association
In cooperation with John H. Bauckham of Kalamazoo, Legal Counsel
for Michigan Townships Association, I am pleased to present to this
conference, the Townships' responsibilities for Water Pollution Law
Enforcement.
At the outset I want to assure this Conference that the associa-
tion which I represent, is in complete accord with water pollution
programs, presently under study.
Our principle concern, however, is in the matter of financing
any obligations which will be imposed by Federal or State Statutes,
or a combination of both.
This presentation deals with ordinance making powers of the
townships, financing and Joint contracts with other municipalities,
as well as with existing industry.
1. Ordinance Powers
In addition to the township board being designated a board of
health with authority to control sources of sickness and disease
(M.S.A. Sec. 14.63), Michigan Public Act 39 of 1963 (5.45 (l))
authorizes the township board to adopt ordinances regulating "public
health." It is generally felt that this ordinance power would extend
to all phases of the regulation of public health and makes the board
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of public health and makes the board of health provisions rather sur-
plusage. Under such ordinance powers it is our opinion that the
township board by resolution at a regular board meeting could prohibit
the contamination and unhealthy pollution of lakes and streams within
the township. The only requirement is that the ordinance be published
within ten days after adoption in a local newspaper and recorded in
an ordinance book within seven days after above publication.
In addition to the foregoing statutes a township is empowered to
adopt a building code under Michigan Public Act 185 of 1943 (M.S.A.
Sec. 5.2971 (l)). Under this statute it can adopt any standard code
by reference and without the necessity of publishing the entire code
in the local newspaper. Such a code could well provide for proper
sewage treatment of industrial waste through individual private
systems or through a public system.
The power of the township to adopt zoning regulations also bears
on their authority in this field. A zoning ordinance can be adopted
under Public Act 184 of 1943 (M.S.A. Sec. 5.2963 (l)). The enabling
portion of the statute on this subject authorizes the township to
adopt provisions pertaining to the "Sanitary safety and protective
measures that shall be r.»<;uired for such dwellings, buildings and
structures." In addition the zoning ordinance is to be based upon
a plan which among other things deals with the "conservation of ...
natural resources." In this regard, a township would be able to
restrict the location of certain trades and businesses thereby pro-
hibiting them from bordering a lake or stream. In addition they
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could regulate the use toeing employed of property and premises with
a view to proper waste disposal and sewage treatment.
2. Financing
The township has the right to enforce all of its ordinances
through its own police department, through a contract with the county
sheriffs' department, and/or through building and zoning inspectors.
All ordinances can provide for a fine of up to one hundred dollars
and ninety days in Jail for each day that a violation exists. The
fines do not inure to the benefit of the township and the township
must support any of its enforcement, agencies from the general fund
of the township or from a special police protection assessment district
which can encompass either a portion or all of the township. In this
regard legislation would be helpful that would permit the townships
to retain fine money at least for violations for local township
ordinances.
The other financing problems are concerned with the construction
of public sewers and sewage treatment plants. Under Act 312 of 1929
the township is authorized to join with other municipalities in In-
corporating a metropolitan authority with independent taxing and
bonding powers. Such authorities can be incorporated for the purpose
of sewage treatment. The Revenue Bond Act, which is Act 9^ of 1933
(M.S.A. Sec. 5.2731) is also of assistance in this matter. It per-
mits townships to build sanitary sewers and treatment plants under
revenue bond proceedings which in practice may be coupled with
special assessment proceedings for the sewer mains constructed in
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the streets. The special assessment proceedings are most frequently
commenced under Act 188 of 1954 (M.S.A. Sec. 5-2770 (51)). All such
bonding proceedings of course must be approved by the Michigan Muni-
cipal Finance Commission. Obviously for a revenue bond proceedings
to be successful there must be available sufficient connectors to
a system to support the bond issue. The bond obligation is retired
from service charges made against connectors to the system. Revenue
bond proceedings can be initiated by the township Aboard whereas
special assessment proceedings are initiated by petition of the owners
of not less than fifty-one percent of the property within the district
as finally established. In townships that have more than five
thousand population special assessment proceedings can be initiated
by the township board without this petition. However, if owners of
twenty percent of the land oppose the proceedings then the board
must revert to the fifty-one percent petition.
Act 342 of 1939 (M.S.A. Sec. 5.2767 (5-1)) and Act 185 of 1957
(M.S.A. Sec. 5.570(1)) authorizes the township to contract with the
county for sewage treatment and sewage systems. Under these acts
the township can pledge the full faith and credit of the township
in support of any obligations necessary to be issued by the county
and can raise funds to pay these obligations by taxation without
limitation, by simple board action, by special assessments, by rates
and charges against users and by other available funds. The taxation
authority is further supported by article nine of 1963 Michigan
Constitution at section six. These acts are very useful and with
the proper attitude on the board of supervisors of the county or on
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behalf of the county road commission depending on which act is
followed, the financing of a large project becomes a relatively simple
matter. If a county does not have its own treatment system and does not
wish to construct one, it may also under these acts contract with a
major city within its boundaries that does have such a system for the
enlargement of the system into township territories
It is also possible to proceed under the County Drain Commission
Act for the construction of storm drainage and sanitary sewer
projects. These proceedings are somewhat more complex and in our
opinion have no advantage over the proceedings which might be
followed under Acts 3^2 and 185 above referred to.
Except in the case of a contract between the township and the
county the township has no authority to tax for a sewage treatment
system unless room is available within the fifteen mill limitation
or the electors within the township vote to increase the fifteen
mill limitation. This presents a serious handicap to townships in
the financing of these projects where the county is not involved.
Legislation is greatly needed to authorize such taxing authority
without limitation where contracts are negotiated with cities and
metropolitan districts for such service. Some help has been
given charter townships in this regard but unfortunately there are
more unchartered townships which do not have this power.
3. Joint Contracts
As previously set forth, townships are authorized to contract
with the county for sewage treatment service. In addition, Act 35
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of 1951 (M.S.A. Sec. 5.^081) authorizes inter-governmental contracts
between any governmental units to accomplish Jointly anything which
they might accomplish individually. Michigan Public Act 222 of 19^9
(M.S.A. Sec. 5.2770(21)) further authorizes a township to contract
with industries concerning waste disposal. As previously stated
however, the only Joint contracts which afford additional taxing
power are those contracts with the county. New legislation could
well extend this additional authority to other types of Joint
contracts.
There are several additional statutes which bear upon the
question of sewage disposal and treatment and pertain to townships
in Michigan. I believe they are for the most part less significant
however than the ones to which I have herein referred.
I hope this presentation has contributed to the Conference,
whether in a positive or negative sense. Members here are aware
that while the will to cooperate is present, the tools with which
townships might do the Job are somewhat restricted and limited by
the statutes, which must be changed.
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COUNTY RESPONSIBILITIES IN WATER POLLUTION LAW ENFORCEMENT
By
Chester C. Pierce
Attorney for Office of Wayne County Drain Commissioner
It was only a few weeks ago that Great Lakes senators were
told that it would take 20 Billion Dollars over a 10 year period
to eliminate water pollution in their region. This report was
/
given by H. W. Poston of Chicago, the federal director for water
pollution control in the Great Lakes area. Although water pollu-
tion problems are inter-related to air pollution problems as the
disposal of various types of industrial wastes by the construction
of necessary disposal systems will result in an increased contam-
ination of air, the technology and wealth of our State has to be
employed in a coordinated method by the various governmental and
individual corporate businesses to reduce pollution drastically.
At the county level, Act 306 of the Public Acts of Michigan
of 1927, M.S.A. 14.l6l provides that the Board of Supervisors of
any county in this State may provide for a County Health Department
and its various activities financed out of the general funds of the
county. The plan of organization of a County Health Department is
approved by the State Health Commissioner, Section 6 of this act
being M.S.A. 14.166, provides that the County Board of Health shall
have and exercise the same powers and perform the same duties of a
Board of Health as conferred by law upon boards of health of town-
ships, villages and cities. The requirement that all rul* » promul-
gated by the County Board of Health are subject to review by the
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Board of Supervisors before they shall become effective is further
provided in Section 6.
There is a provision in this county act that two or more
counties may, by a majority vote of the Board of Supervisors of
each county and approval of the State Health Commissioner, unite
to form a district health department. One arm of the County Health
Department is the division of engineering and sanitation. This
division concerns itself with water pollution problems throughout
the county. On a county level its usual policy is to notify the
offending parties of its findings and recommend remedial action.
Such action can take on various forms as the necessity of construc-
tion of sanitary sewers, sanitary treatment plants or even quasi-
storm water treatment plants. The construction of proper Industrial
wastes have been found to pollute county streams and are injurious
to public health. Although the enforcement provisions of county-
health laws lack the proper teeth or guidance in order to arrive
at an enforcement solution, the County Health Department usually
cooperates with the Water Resources Commission to make its findings
known where degrees of pollution are present. Compliance with pro-
visions at the local level usually require extended court litigation
against private or public corporations who are known to pollute our
waters. Against public corporations the remedies are provided In
Act 245 of 1929, M.S.A. 3.521 to M.S.A. 3.532, the act creating the
Water Resources Commission, and amended by Act 328 of 1965, M.S.A,
3.526, wherein pursuant to Act; 320 of 1927, M.S.A. 5.2667, the Mater
Resources Commission can seek remedies in cooperation with the
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County Health Department against any city, village or township in
a court of competent jurisdiction in this state. When a govern-
mental unit cooperates in an endeavor to eliminate pollution, re-
sults are achieved. An example of use of this type of cooperation
was shown through the installation of a five million dollar system
in the Township of Grosse lie through the use of the Water Resources
Commission and cooperation of the township and drain commissioner's
office. After trial of such matters in the circuit court of said
county, the local governmental unit can issue so-called court order
bonds for the construction of the proper sewage disposal facility.
An example of use of court order bonds litigation was the construc-
tion of a million dollar system for the City of Rivervlew through
the use of this chapter. Our courts have held that such court order
bonds may be issued and taxes levied for their payment in excess of
statutory or charter tax limitations. It is my view that Act 328
of 1965, will permit townships to exceed the 15 mill constitutional
limitation on the basis of court ordered bonds as well as Article
IX, Section 6 of the Constitution of 1963, wherein the language
employed therein states that: "The foregoing limitations shall not
apply to taxes Imposed for the payment of assessments or contract
obligations in anticipation of which bonds are issued." In my view,
Public Act 328, a portion of Section 6, Sub-section (c), which reads
as follows: "Whenever a court of competent jurisdiction in this
state shall have ordered the installation of a sewage disposal sys-
t
tern in any township, and the plans therefor shall have been prepared,
and approved by the state health commissioner, the township shall
have authority to issue and sell the necessary bonds for the con-
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struction and installation thereof, including the disposal plant
and such intercepting and other sewers as may be necessary to per-
mit the effective operation of such system. Such bonds shall be
issued in the same manner as provided for in Act No. 320 of the
Public Acts of 1927, being Sections 123.241 to 123.253, of the Com-
piled Laws of 1948; or any other act providing for the issuance of
bonds in townships;" will permit townships to exceed the 15 mill
limitations through the use of court ordered bonds. As prior to
the amendment of this act, the townships were mentioned fcufc no pro-
visions were employed to provide for the issuance of court ordered
bonds and their applications to township disposal plants and inter-
ceptor sewer problems. However, it is my belief that under this
act and under Chapter 20 of Act 40 of the Public Acts of Michigan
of 1956, as amended, our courts would sustain the use of these two
acts to exceed the 15 mill constitutional limitation because Article
IX, Section 6, of our present Constitution contains the following
language: "The foregoing limitations shall not apply to taxes im-
posed for the payment of principal and interest on bonds or other
evidences of indebtedness or for the payment of assessments or con-
tract obligations in anticipation of which bonds are issued, which
taxes may be imposed without limitation as to rate or amount "
A great amount of work in pollution law enforcement and abate-
ment has been accomplished in the counties of Wayne, Oakland and
Macomb through the use of Chapter 20 of the Drain Code. Act 40 of
the Public Acts of Michigan of 1956, provides a simple method for
public corporations, and as employed in that act, it means counties,
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villages, townships and any other authorities or districts created
pursuant to state statutes to build and construct public improve-
ment projects like sanitary drains, storm water drains or sanitary
and storm water treatment plants that are necessary to the public
health of the various governmental units. In these three counties
alone, over one hundred twenty million dollars in public improve-
ment projects have been constructed during the past eight year
period. Its companion, Chapter 21, which permits cooperation be-
tween governmental units located in adjacent counties has permitted
Macomb and Wayne County to construct a semi-storm water treatment
facility at a cost of eight million dollars. The advantage of
using this act is that county bonds are issued with the full faith
and credit of the local governmental units and the full faith and
credit of the county pledged for their payment in order to pay for
the public improvement to be constructed. Because all these bonds
are in the nature of public health bonds, the local units of govern-
ment are permitted to exceed their statutory and charter tax limi-
tations to retire these bonds. After full payment for the bonds
the system becomes a local system. Other acts available to counties
are the D.P.W. Act and Act 342 of 1939, or Act 185 of 1957.
Act 222 of 19^9, provides for the acceptance of grants or aid
to prevent and abate water pollution, M.S.A. 5.2770 (21), Section
1, of that act provides: "As used in this act, unless a different
meaning clearly appears from the content: (a) The term 'public
corporation' shall be construed to mean any county, city, village,
township or metropolitan district, of the State of Michigan, or any
authority created by or pursuant to an act of the legislature.
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(b) The term 'governing body' shall be construed to mean, In the
case of a county, the board of supervisors; in the case of a city,
the council, common Council, commission or other body having legis-
lative powers; in the case of a village, the council, common council,
commission, board of trustees or other body having legislative powers;
in the case of a township, the township board; in the case of a
metropolitan district, the legislative body of the district; and
in the case of an authority, the body in which is lodged general
governing powers."
Section 2 of the act provides: "Any public corporation is
hereby authorized to apply for and accept grants or any other aid
which the United States government or any agency thereof has author-
ized or may hereafter authorize to be given or made to the several
states of the United States or to any political subdivisions or
agencies thereof within the states for the construction of public
improvements, including all necessary action preliminary thereto,
the purpose of which is to aid in the prevention or abatement of
water pollution."
Section 3 of said act is unique in that it permits agreements
between industries to treat the disposal of Industrial waste, and
that section reads as follows: "Any public corporation is further
authorized to accept contributions and other aid from industries
for the purpose of aiding in the prevention or abatement of water
pollution and in furtherance of such purpose to enter into contracts
and agreements with industries covering the following:
(a) The collection, treatment and disposal of sewage and
industrial wastes from industries;
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(b) The use and operation by any such public corporation of
sewage collection, treatment and/or disposal facilities owned
by any Industry;
(c) The coordination of the sewage collection, treatment and/
or disposal facilities of the public corporation with the sew-
age collection, treatment and/or disposal facilities of any
industry;
(d) When determined by Its governing body to be in the public
Interest and necessary for the protection of the public health,
any public corporation Is authorized to enter into and perform
contracts, whether long-term or short-term, with any industrial
establsihment for the provision and operation by the public
corporation of sewerage facilities to abate or reduce the pollu-
tion of waters caused by discharges of industrial wastes by the
industrial establishment and the payment periodically by the
industrial establishment to the public corporation of amounts
at least sufficient, In the determination of such governing
body, to compensate the public corporation for the cost of
providing (including payment of principal and interest charges,
if any), and of operating and maintaining the sewerage facil-
ities serving such industrial establishment: Provided, That
the exercise by any public corporation of such powers outside
of its corporate limits shall be subject to the legal rights
of the political subdivision within which such powers are to
be exercised and shall also be subject to any and all consti-
tutional and statutory provisions relating thereto."
These sections can also be employed with Act 35 of 1951, M.S.A.
5.^081, readtgas follows: Section 1. "For the purposes of this
act 'municipal corporation1 shall mean any county, township charter,
township, city or village, school district, metropolitan district,
court district, public authority, or drainage district as defined
by Act No. 316 of the Public Acts of 1923, as amended, being Sec-
tions 261.1 to 278.27, Inclusive of the Compiled Laws of 19^, or
any other local governmental authority or local agency with power
to enter into contractual undertakings."
Section 2. "Any municipal corporation shall have power to
Join with any other municipal corporation, or with any number or
combination thereof by contract, or otherwise as may be permitted
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by law, for the •wnershlp, operation, or performance, jointly, or
* «*
by any 1 or more on behalf of all, of any property, facility or
service which each would have the power to own, operate or perform
separately."
Section 3. "Any municipal corporation shall have the right to
contract with any person or any other municipal corporation to fur-
nish to property outside the corporate limits of the first municipal
corporation for an adequate consideration, any lawful municipal
service which it is furnishing to property within its corporate
limits. For the purposes of this section, 'person' shall mean any
person, firm, corporation, the United States government, or the
state or any of its subdivisions."
Section 4. "Nothing contained in this act shall be construed
to grant the right to Jointly own or operate a public utility for
supplying transportation, gas, light, telephone service, or electric
power except as may be provided by the statutes or constitution of
the State of Michigan, nor to contract to furnish municipal services
outside corporate limits except in accordance with the constitutional
limitations on such sale. Nothing contained in this act shall be
construed as to grant to municipal corporations acting Jointly any
power or authority which they do not have acting singly."
Knowing that county government should move ahead to abate
water pollution, what type of action is needed. First, I believe
the Water Resources Commission should be delegated the sole state
agency in charge of water pollution enforcement and legislation be
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implemented to permit the commission to delegate its enforcement
powers on a county regional basis. The Water* Resources Commission
could establish regional deputy planning and enforcement centers
built around county areas with various pollution problems. Indus-
trial counties in close proximity to each other could be grouped
together as one area. Agricultural areas with problems like the
pickle industry is another deputized area. Each deputy regional
director would be responsible for programs to eliminate pollution
in his area. I believe also, that the Water Resources Commission
should sponsor legislation to broaden the aspects of Act 62 of the
Michigan Public Acts of 1963. This Is an act relating to indus-
trial development, to authorize municipalities to acquire indus-
trial buildings and sites, to provide for the financing of such
buildings by the issuance of revenue, bonds, etc. The act should
be amended to include the building of regional industrial or needed
waste disposal plants on a regional basis with the lease provisions
of the act employed to pay for such plants on a revenue basis. The
State Legislature should make available sufficient appropriations
for research centers to aid in industrial or agricultural waste
disposal methods in the various deputized pollution regional cen-
ters. The elimination of water pollution through the collection,
treatment and disposal of sewage and Industrial wastes from Indus-
tries on a regional basis can be better accomplished than on a
single basis. Tax relief for industry so that waste treatment
facilities be free from real and personal property taxation is
another measure needed in our state. Air pollution facilities are
exempt from real and personal taxation under provisions of Act 250
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of 1965, and treatment facilities should be likewise. A combined
action from one central authority will be better than unilateral
or separate action by various governmental units. Such a law would
permit uniformity of control and cooperation with the various units
of government and business involved. Approaching the problem of
industrial waste disposal on a regional basis would be more econ-
omical and practical. As proof of this, Michigan can point with
pride at its accomplishments in the field of certification of sew-
age plant operation. This program has resulted in higher quality
and more efficient plant operation.
The Governor of the State of New York has on the ballot today
a one billion dollar bond issue for his state to fight pollution.
The State of New York, under this program, would contribute 60 per
cent of the cost and the local government 40 per cent of the cost
to control and eliminate pollution problems. I believe our counties
should support such a daring program of state and local government
aid and cooperation to eliminate pollution. Such a vast bonding
pollution control program could be financed by a water and sewage
rate increases on a regional basis or by a combination of methods
consisting of water and sewage rates, industrial lease charges, if
industrial waste disposal plants were built and an at large one
mill regional tax levy for pollution cleanup to benefit regional
public health. A repeal of the constitutional prohibition against
state credit to local regional governmental units wherein the state
could pledge its full faith and credit behind local regional bond
issues has also been recommended as a measure to lower the total
cost of pollution abatement to local regional units of government.
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The time for bold action is here. Michigan the water wonder-
land of the world should lead the way.
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ENFORCEMENT OF THE FEDERAL WATER POLLUTION CONTROL PROGRAM
By
Murray Stein
Chief Enforcement Officer
Division of Water Supply and Pollution Control
IT. S. Department of Health, Education, and Welfare
Federal authority over water pollution has changed dramatically
in character and direction in the past six decades. We have pro-
gressed in 66 years from the earliest specific water pollution con-
trol legislation which considered pollution only as an obstacle to
navigation (The Rivers and Harbors Act of 1899) to the most recent
water pollution control legislation which has as its stated purpose...
"to enhance the quality and value of our water resources and to
establish a national policy for the prevention, control and abate-
ment of water pollution" (The Water Quality Act of 1965).
The Federal legislation in the intervening years illustrates
the growing national awareness and concern over the Increasing pol-
lution of our valuable water resources. At first, water pollution
control legislation took a narrow, limited approach to pollution
control. Later, a more comprehensive approach was taken which was
admittedly experimental, and resulting from this the Federal Water
Pollution Control Act was enacted and twice amended.
Three early legislative acts are indicative of the limited ap-
proach. We have already mentioned a provision of the Rivers and
Harbors Act of 1899 which prohibited the discharge or deposit Into
any navigable waters of any refuse matter except that which flowed
in a liquid state from streets and sewers. The Public Health Service
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Act of 1912 recognized the health hazards of pollution by author-
izing Investigations of water pollution related to disease. The
Oil Pollution Act of 1924 was designed to control oil discharges
In coastal waters damaging to aquatic life, harbors, docks, and
recreational facilities.
Comprehensive water pollution control legislation narrowly
missed final enactment or approval In 1936, 1938, and 1940. A land-
mark year for the Federal program was 1948 with the enactment of
the Water Pollution Control Act of 1948, creating the first compre-
hensive program for pollution control. This law was experimental
and originally limited in duration for a period of five years. It
was extended for an additional three years, to June 30, 1956.
The Federal Water Pollution Control Act, enacted In July of
1936, was the first comprehensive pollution control legislation of
a permanent nature. The ACT; greatly strengthened and expanded the
Federal role, and provided the basis for our present program. The
Act was administered by the Surgeon General of the Public Health
Service under the supervision and direction of the Secretary of
Health, Education, and Welfare. This Act:
1. Reaffirmed the policy of Congress to recognize, preserve,
and protect the primary responsibilities and rights of
the States in preventing and controlling water pollution;
2. Authorized continued Federal-State cooperation in the
development of comprehensive programs for the control of
water pollution;
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3. Authorized Increased technical assistance to States and
broadened and Intensified research by using the research
potential of universities and other Institutions outside
of government;
4. Authorized collection and dissemination of basic data on
water quality relating to water pollution prevention and
control;
5. Directed the Surgeon General to continue to encourage
Interstate compacts and uniform laws;
6. Authorized grants to States and Interstate agencies up to
$3,000,000 a year for the next five years for water pollu-
tion control activities;
7. Authorized Federal grants of $50,000,000 (up to an aggre-
gate of $500,000,000) for the construction of municipal treatment
works, the amount for any one project not to exceed 30$
of cost, or $250,000, whichever is smaller;
8. Modified and simplified procedures governing Federal abate-
ment actions against interstate pollution; and,
9. Authorized a cooperative program to control pollution
from Federal Installations.
The Act was amended in July of 1961 to provide for a still more
effective program of water pollution control. The 1961 amendments
Improved and strengthened the Act by
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1. Extending Federal authority to enforcement abatement of
Intrastate as well as Interstate pollution of navigable
or Interstate waters and strengthening enforcement proce-
dures;
2. Increasing the authorized annual $50 million Federal
financial assistance to municipalities, for the construc-
tion of waste treatment works;
3. Intensifying research toward more effective methods of
pollution control and authorizing the establishment of
field laboratories and research facilities;
4. Extending for seven years, until June 30, 1968, and in-
creasing Federal financial support of State and interstate
pollution control programs by raising the annual appropri-
ations authorization from $3 million to $5 million;
5. Authorizing the inclusion of storage for regulating stream
flow for the purpose of water quality control In the sur-
vey or planning stage of Federal reservoirs and impound-
ments; and,
6. Designating the Secretary of Health, Education, and Welfare,
to administer the Act.
The October 1965 amendments, which may be cited as the Water
Quality Act of 1965 have considerably enlarged and broadened the
scope of the Federal water pollution control program. Yet, consis-
tent with the policy declaration of the 1948 Act, the 1956 Act and
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the 1961 amendments, the Water Quality Act of 1965 declares the
policy of Congress to be "...to recognize, preserve, and protect
the primary responsibilities and rights of the States in preventing
and controlling water pollution, to support and aid technical re-
search relating to the prevention and control of water pollution,
and to provide Federal technical services and financial aid to
State and interstate agencies and to municipalities in connection
with the prevention and control of water pollution."
The new amendments further strengthen the Federal program by:
1. Creating a Federal Water Pollution Control Administration
in the Department of Health, Education, and Welfare;
2. Authorizing a new four year grant program of $20 million
each year, for the development of new and better methods
of dealing with the pollution problem of overflows from
combined storm and sanitary sewers;
3. Increasing the annual appropriations for Federal grants,
both single and mult1-municipal projects, and offering a
10 percent bonus in the amount of grants for projects which
are part of approved metropolitan area plans; and,
4. Providing for the establishment of water quality standards
applicable to interstate streams, with the Federal govern-
ment acting only in the absence of acceptable action by a
State with respect to the interstate waters in that State.
Thus, as provided by statute, through Federal, State and local
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cooperation and coordination, the Federal water pollution control
program approaches the complex national problem of water pollution
in three ways: technical and financial assistance, research, and
enforcement. All stimulate voluntary action. Where such voluntary
action is not forthcoming, enforcement authority can make remedial
action mandatory. Abatement of pollution, is the aim and purpose
of all three of these coordinated program areas.
The enforcement Jurisdiction covers pollutional interference
with any legitimate water uses. Its application is mandatory at
the request of a State Governor, a State water pollution control
agency, or a municipality in whose request the Governor and the
State agency concur, when the pollution crosses State lines to the
detriment of the health or welfare of persons in the receiving State.
An enforcement action may be called at the request of a Governor of
any State on pollution of interstate or navigable waters which en-
dangers the health or welfare of persons only in the requesting
State. Enforcement action must also be taken by the Federal govern-
ment without State request, when on the basis of reports, surveys,
or studies, Interstate pollution endangering health or welfare is
found to be occurring. The new amendments to the Federal Water
Pollution Control Act expand enforcement authority by empowering
the Secretary of Health, Education, and Welfare to initiate enforce-
ment procedures whenever he finds that substantial economic injury
results from the inability to market shellfish or shellfish products
in interstate commerce because of pollution of interstate or navi-
gable waters, and the action of Federal, State or local authorities.
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Although enforcement Jurisdiction has now been extended, I be-
lieve it is a measure of the success of the enforcement program
that no changes were made in the enforcement procedures.
I would like to explain these procedures now for those who are
not familiar with them, and then discuss some of the enforcement
actions we have taken.
Federal authority is asserted in three distinct stages: (l)
the conference, (2) the public hearing, and, (3) court action.
Each successive step is taken only if the one preceding is unsuc-
cessful in securing compliance with the recommended pollution abate-
ment measures. State action to remedy the pollution is encouraged,
and State and Federal interests are fully coordinated.
The conference brings together representatives of the Federal
government and the State and interstate agencies concerned. It in-
quires into the occurrence of pollution subject to abatement, the
adequacy of measures taken to abate it, and the delays, if any,
that are being encountered. The conferees may agree upon a schedule
of required remedial measures, or in the absence of adequate scien-
tific and technical data, may agree that further study is necessary
before a schedule is established. The States are encouraged to
obtain compliance under their own laws when an agreed upon remedial
schedule has been established, and are allowed at least six months
to take the necessary actions. If the conferees are unable to reach
agreement on a program of remedial action, the Secretary of Health,
Education, and Welfare, may issue his own recommendations.
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In the event that failure to take remedial action necessitates
recourse to the public hearing stage, the alleged polluters, whether
an industry, individual or governmental unit are made direct partici-
pants before a Hearing Board appointed by the Secretary. Findings
are made by the Hearing Board on the evidence presented, and it
recommends to the Secretary the measures which must be taken to
secure the abatement of the pollution. The Secretary sends these
findings and recommendations to the polluters and to the State
agencies, together with a notice specifying a reasonable time, which
may not be less than six months, to secure abatement of the pollu-
tion.
If there Is no compliance with the hearing recommendations
after six months, the Secretary may request the Attorney General
to bring suit on behalf of the United States to secure abatement
of the pollution. The written consent of the Governor is necessary
to proceed with court action in an intrastate pollution matter.
We consider the conference step of enforcement procedures to
be the most important. Even though it is only the first step, it
is frequently the only step necessary. Of the 37 enforcement
actions held to date, only 4 have proceeded to the public hearing
stage, and one of these 4 hearings, that on Corney Creek, was
called under the provisions of the 1948 Act, which provided for
the hearing as the first step of enforcement procedures. A single
case has required court action. This record attests to the success
of the conference as a means of determining the pollution problems
and stimulating the necessary action to abate pollution.
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Any formal statement of how a conference can be called and the
statutory requirements of the conference procedure cannot explain
what the conference really Is and how It really works.
The conference, first and most Important, Is not an adversary
proceeding, although In a few Instances the conferees, and these
were ro$ the Federal conferees, considered the conference as suon.
We believe the conference Is Just what the word says—it is a formal
consultation or discussion, and interchange of views, where differ-
ences are adjusted. When all parties concerned approach the con-
ference with this view, we find that pollution problems are more
openly discussed, mutual concessions frequently made, and detailed
plans of action developed. The conference operates informally.
No strict rules of evidence are applied and all statements offered
are accepted regardless of relevance. Each of the conferees may
bring as many people as he wishes to participate in the conference.
The participants at any of the conferences represent many different
groups or Interests. Of course, only the conferees who are the
representatives of the Department of Health, Education, and Welfare
and the official State and Interstate agencies may make the conclu-
sions and recommendations of the conference. The conferences are
always open to the public and we have found that public support of
pollution abatement programs Is an immeasurable aid in stimulating
remedial action on the part of Industries, municipalities and even
Federal installations.
Since the first Federal water pollution control enforcement
action was held in 1957, great progress has been made in bringing
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about the abatement of pollution throughout the country. Every
section of the country and many different types of pollution prob-
lems have been covered. Several actions have been taken on the
major waterways of the country—the Mississippi River, the Missouri
River, the Colorado River, the Detroit River, the Hudson River,
Fillet Sound, Raritan Bay, Lake Michigan in the Chicago-Gary, Indiana
area, and Lake Erie, to name a few. We have covered over 7,000
miles of stream at the 37 conferences, and this figure does not
include lake and ocean waters.
The pollution problems encountered in these enforcement actions
have been of almost every kind, in many differert types of water-
ways, in varying degrees of complexity. Pulp and paper wastes, un-
treated or inadequately treated sewage, storm sewer runoff, uranium
milling wastes, salinity both man-made and natural, textile mill
wastes, pesticides and meat packing wastes discharged into small
streams, giant rivers, streams with high flow, low flow or both,
lakes, bays and ocean harbors, are representative of the problems
we have dealt with. These wastes alone or in any combination can,
and have created tremendous problems.
At the conference, the Federal government and the offleal State
and interstate pollution control agencies try to find answers to
problems of this sort, and at times we Just don't have any. In such
instances the conferees have unanimously recommended the establish-
ment of a technical study project to supply the necessary informa-
tion to develop solutions to the problems.
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At present, eight such projects, evolving directly out of th«
conferences by recommendation of the conferees are In existence.
These projects are on the Colorado River Basin, Rarltan Bay, the
South Platte River Basin, the Upper Mississippi River in the Twin
Cities area, in Washington State concerned mainly with Puget Sound,
the Monongahela River concerned with the problem of acid mine
drainage, the Merrlmack River and the Detroit River.
The Detroit River conference and resultant Project provides a
fine example of how the conference procedure works and the knowledge
that can be developed by a detailed technical study.
The conference on pollution of the navigable waters of the
Detroit River and Lake Erie and their tributaries within the State
of Michigan was requested on December 6, 196l, by John B. Swainson,
then Governor of Michigan. The conference was called by the Secre-
tary of Health, Education, and Welfare, and was held on March 27-28,
1962, In Detroit. The conferees were representatives of the Michi-
gan Water Resources Commission and the Department of Health, Educa-
tion, and Welfare. The conferees agreed that pollution from various
municipal and industrial sources subject to abatement under the
Federal Act was occurring in the conference area. They agreed that
this pollution caused interference with municipal and industrial
water supplies, fisheries resources, commercial and sport fishing,
swimming, water skiing, pleasure boating, and other forms of recrea-
tion. The conferees then agreed that it was too early to make an
adequate Judgment on the adequacy of measures taken to abate pollu-
tion because of the many gaps in the knowledge of sources and effects
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of this pollution. It was recommended that the Department of Health,
Education, and Welfare initiate an investigation and study to gather
data and information on the waters involved, in order to close the
gaps in the knowledge of sources of pollution, nature and effects
of the pollution, appropriate methods of abatement and aooropriate
methods to avoid delays in abatement.
A resident study project was established and the work was
carried on in close cooperation with the Michigan Department of Health
and the Michigan Water Resources Commission. The Project, running
2 1/2 years, staffed by 30 men, and costing $750,000, .accomplished
what it set out to do. Shortly after the completion of the study,
the conference reconvened for a second session on June 15-18, 19&5.
The Project's findings and recommendations, presented in a definitive
report, were adopted by the conferees. The Michigan water pollution
control authorities are now vigorously putting the conference rec-
ommendations into effect.
The recent conference on the entire area of Lake Erie within
the United States presented one of our most difficult pollution
problems. The area of water covered by this conference was so large,
and concerned so many sources of wastes that two conference sessions
held a week apart were necessary to consider the highly complex
municipal, industrial, and biological problems. The conference
first convened on August 3-5, 1965 at Cleveland, Ohio, and was
reconvened at Buffalo, New York, on August 10-12. The States of
Michigan, Indiana, Ohio, Pennsylvania, and New York were Involved.
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The problem of major concern on Lake Erie is that of eutro-
phlcatlon or over-fertilization. Problems are occurring along the
Lake shoreline, at some water intakes, and throughout the Lake from
algal growths stimulated by nutrients. The Federal report, based
on studies of Lake Erie made over the past two years, stated that
reduction of one or more of these nutrients can retard or control
the algal growths. We are confident that the reduction of soluble
phosphates through conventional treatment processes will slow the
now accelerated eutrophication to a more natural, normal rate.
There is no doubt that control of the pollution of Lake Erie will
be a great step forward in preserving and protecting the Great Lakes,
our greatest fresh water resources.
The Federal Water Pollution Control Program has made tremendous
progress in a few short years. But all this progress is really Just
a step in the right direction. And while we have been taking steps,
pollution of our waters has been advancing with great strides.
In the future we will all have to do much more. Prevention
of pollution in both surface and ground water supplies will be im-
perative; otherwise I doubt if we can ever ggt ahead, let alone
catch up, with this nation's pollution problems.
To cope with the rising tide of pollution more research, tech-
nical and financial aid, and greater enforcement of water pollution
control laws at local, State and Federal levels will be necessary.
This all must be done now, before the irresponsible damages to our
water resources become irreversible.
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Some states have taken drastic action In providing financial
assistance to Industries and communities and some states have taken
action in cooperating and working with a forthright program. I
don't think there is any state second to Michigan in -caking action
in developing a program within Its resources and giving the tax-
payers a dollar's worth of work for every dollar they put In, be-
cause in my opinion, there is not a water pollution control pro-
gram in any state of the union that is any better than you have
in Michigan today and we hope we can keep that cooperative program
going with you. God bless you. Thank you very much.
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THE ROLE OF THE SCIENTIST
By
Dr. Leon W. Weinberger, Chief
Basic and Applied Sciences Branch
Division of Water Supply and Pollution Control
U.S. Department of Health, Education, and Welfare
The title of my presentation is "The Role of the Scientist"
but I wish to point out that I shall not discuss the role of the
federal scientist. As a matter of fact, I am delighted that Mr.
Powers spoke before me, because he is an engineer-scientist who
is held in high regard throughout the scientific community. He
was in private industry, spent some time with the government and
returned to industry. I'm a university professor who changed to
the federal government - and we have had many federal employees
who have gone to Industry and universities.
The point is there should not be such titles as a federal
scientist, a State scientist, an industrial scientist, or a scien-
tist from a university. Presumably they all work with the same
rule: To develop facts and information to be used by the public,
by legislatures, and by administrators as a basis for making deci-
sions. Unfortunately, scientists sometimes make decisions which
are beyond their technical competence.
In talking about the scientist, I will speak in terms of the
physical scientist, that is, the chemist, physicist, biological
scientist, medical scientist and the social scientist, who has a
very important role in water pollution control. Also I include
the engineer in this category.
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In the field of pollution control, the scientist has provided
many answers which have resulted in water quality improvements.
As discussed this morning, there are certain cases of pollution
for which we have the technical answers. Pollution can often be
identified without high powered analytical tools. Scientific anal-
yses are not needed when the senses of smell and sight have been
offended. We have developed many treatment methods for controlling
pollution.
The research scientist provides new or improved answers to
problems that need to be solved and for which we do not have an
acceptable solution. There was also some discussion this morning
concerning the relative roles of the scientist and the legal pro-
fession involved in enforcement. I'm not quite sure whether there
should be a casting of "good guys" or "bad guys." When I first
entered government some of my colleagues thought that the people
in the scientific community were the "good guys" - they were the
ones who were trying to be helpful. The enforcement guys were the
"bad guys" - they're the ones who were forcing people to carry out
a. decision. There can be little doubt that the research scientist
and the men in enforcement seek the same goal - to reduce control
and abate pollution. And they do work together.
In the last few years I think that perhaps the scientist,
with his improved analytical techniques, improved methods to re-
late impurities and pollutional effects, and new methods of treat-
ment, is the one who is "putting the teeth" in enforcement.
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The scientist deals with facts, but seldom with absolute val-
ues. I suggest that one principal area which should be better
understood by those who are attempting to develop effective legis-
lation and to enforce our pollution laws, is that scientists usu-
ally do not have absolute answers. This however does not detract
from the significance and Importance of the answers. The scientist
deals with average values, ranges, probabilities, and with safety
factors. This Is part of the scientific process. We cannot easily
define the complex relationships in the field of water resources
and water quality control. The scientist is frequently required
to make conclusions based on the best availabe Information without
carrying out additional work. Such a conclusion should be consid-
ered as the best Interpretation of the data at a particular time -
an Interpretation which might change with the development of addi-
tional data. Certainly this is not a new concept but it appears
that it is often forgotten.
When scientists and engineers disagree about physical facts,
it can be attributed to any one of several possible causes. One
is the lack of adequate data. Second, when the scientist begins
deviating from scientific discourse toward political decisions,
there can be some unwarranted extrapolation and distortion. Third Is
inaccurate reporting, whether deliberate or inadvertent. We must
have reliable data and objective analysis as the basis for our
discussions. If agreement cannot be reached on physical facts,
the data and/or the Interpreters may be Inadequate and steps should
be taken to correct the situation.
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As scientists, we wish to cooperate with legislatures, with
the public, and with all those concerned with water pollution con-
trol. I'm sure many of you have heard scientists say, if only the
legislators would provide us with better laws and conversely legis-
lators say, if only we had precise scientific data upon which we
could establish criteria or standards.
What is the specific role of the scientist concerned with water
pollution? First, the scientist has a key role in determining the
relationship between impurity and water use. This consists of
measuring the effects of a contaminant or Impurity and of deriving
scientific information to be used as a basis for establishing water
requirements for all uses. A good scientist works to establish
universally-acceptable scientific tests to measure cause-and-effect
relationships. This is a very difficult task primarily because we
do not have absolute factors; we are dealing with biological organ-
isms from microbes to man. The effects may be physiological (acute
or chronic), economic, or aesthetic.
Second, the scientist is involved in developing methods to
measure the various Impurities at a wide range of concentrations.
This, again, is not a simple task. Some water pollution investi-
gations during the last few years have required the measurement of
concentrations of one part per billion or a few parts per trillion
of pollutants. These quantities are so small that they are diffi-
cult to comprehend. We are developing tools, as mentioned this
morning, which will enable us to determine these facts with the
necessary accuracy and precision so that pollution may be controlled
and laws enforced.
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Third, the scientist is concerned with the fate of an impurity
after it is introduced into the water environment. Waste from an
industry, a municipality, an agricultural land drainage, or an im-
purity from a natural source follows a very complicated hydrologic
path from its origin to the point of containment such as the ocean.
The interaction of these pollutants with fie aquatic environment,
including aquatic life, is something which the scientist is trying
to define in more precise terms.
Fourth, he is developing new and improved treatment methods
so that any impurity can be controlled and reduced to any level.
The reduction of pollutant levels points to the difference be-
tween a scientific solution and an engineering solution. From a
scientific point of view, we can remove as much of the impurities
from any waste as we desire; this has been possible for many years
and is an experiment performed by almost every high school student.
We can distill water or double or triple distill it to remove im-
purities; this is a solution from the scientific point of view,
but it Is not necessarily a practical or engineering solution. In
engineering, we must be concerned with the economics of removing
Impurities from wastes. Many new processes, in effect today, are
no more than laboratory curiosities. Our efforts are to convert
these curiosities to practical, economical, engineering realities.
Fifth, the scientist Is interested in developing techniques
to control pollution at the source. As Mr. Powers mentioned, the
role of industrial managers is to watch the methods by which chem-
icals are produced and to modify production processes to reduce
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pollution. Pollution from agricultural lands may likewise be re-
duced by improved land management.
Finally, one area of research in which limited work has been
done is in the socio-economic aspects of pollution control. In
general, the social scientist is trying to develop methods by which
we can equate various suggested solutions to a problem; with a
problem such as water pollution, there are, generally, many possi-
ble solutions. The public is called upon frequently to make the
decision, that is, to select the best among various alternates.
In socio-economic research, we are trying to develop methods to
make this choice easier.
I've heard it said that scientific research is carried out to
permit polluters to continue the pollution of our streams. This
cannot and will not be said of our national research program. The
scientist should not be used as a person to justify continued pol-
lution of our resources. He has a vital role in bringing about
water pollution control. He provides more and better answers for
water pollution abatement. He is developing better tools to assess
and to demonstrate the effects of pollutants. Also, the scientist
and engineer are modifying and improving techniques for treatment
which were considered unfeasible or uneconomical but which now more
communities and more industries can afford to install.
In summary, the role of the scientist can perhaps be outlined
in four general categories.
First, the scientist establishes the relationship between 1m-
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purities and the various water uses. This consists of determining
the effect of an impurity on the water used for drinking, industry,
agriculture, to propagate fish and other aquatic life, or recrea-
tion. These are scientific relationships that all scientists should
agree upon within the accuracy of the work that can be carried out.
Second, the scientist has a role in developing suggested solu-
tions to the water pollution problems and presenting as many prac-
tical solutions as possible. Reliable cost data should be presented
with the solutions. To solve a problem, there are several alter-
nates. In a particular situation, treatment, process modification,
removing the waste from the water course, or providing additional
dilution may be alternatives. All these solutions should be pre-
sented by the scientists.
Third, the scientist should develop techniques to facilitate
a decision as to what is the best solution. In this role, the
scientist has a very difficult task of translating scientific in-
formation so that it can be readily understood by the people who
make the decisions through the political process.
Finally, the scientist develops the instrumentation to assure
that decisions, once made, are carried out - to see that our laws
are enforced. Once a decision is made as to what the quality of
our waters will be and what the maximum levels of impurities will
be in our streams, then the scientist can develop systems to assure
the public that these standards are kept.
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THE CHEMICAL INDUSTRY AND WATER POLLUTION LAW ENFORCEMENT
By
Thomas J. Powers
The Dow Chemical Company
We welcome this opportunity to represent the Chemical Indus-
try at this unique conference. I say "unique" because enforcement
conferences are quite common these days while conferences about en-
forcement are not. Those of us who must use public waters appreciate
a chance to express a few thoughts on these matters.
Chemical companies operating in Michigan are well acquainted
with enforcement. In our view the Michigan laws have been enforced,
fairly and well. One company has been operating under restrictive
orders for thirty years. Yet, the chemical industry has had a
healthy growth in Michigan, Raw materials for the manufacture of
many chemicals are plentiful in Michigan. Limestone, salt, natural
brines, wood and water, coupled with access to sea going transpor-
tation, practically assure a continuing growth of our industry in
this state.
The chemical industry operates in all 50 states. The value
of chemicals manufactured is in excess of $30 billion. Michigan
alone accounts for about $700 million with about 36,000 employees
and payrolls of $250 million a year.
We believe we are an industry which is basic to the economy,
basic to the production of food and fibre, basic to health.
We are a complex industry with 10,000 products.
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We are a creative Industry. This creativeness results In con-
stant change. Change of product, change of process, change of
wastes.
This constant change has caused the Industry to become very
alert to water pollution control. The need for alertness was
recognl2ed on March 17, 1936, when the Board of Directors of the
Manufacturing Chemists Association authorized the formation of a
"Committee on Prevention of Water Pollution." For years this com-
mittee operated as the Water Pollution Abatement Committee and is
now called the Water Resources Committee.
The Industry will sponsor a technical seminar at Ann Arbor
the week of November 15. Some 25 representatives from chemical
plants in the midwest will receive a full week of training in the
why's and how's of water pollution control. The only purpose of
these seminars is to enhance the Industry's capabilities to meet
its responsibilities in water pollution control.
Besides the seminar type of training the industry committee
sponsors high level workshops in various parts of the country; for
chemical companies both large and small. These workshops provide
for an exchange of problem solving "know-how." They also provide
for a free exchange of information, ideas and policies regarding
legislation.
It must be evident that the chemical Industry does have prob-
lems in the control of water pollution. The questions we have been
asked were these:
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First) What is the relation of water pollution law
enforcement to the operation of chemical
industry plants? and,
Second) What is the relation to the development of
the chemical Industry?
The first thing the manager of a chemical plant does when faced
with a demand for Improved effluent is to review operations. His
hope is that he can meet the demand by a process change. This pro-
cess change may be the use of a more pure raw material. It may be
the recovery of values. It may be the elimination of water -contact.
Rest assured, he will exhaustively study every method known to pro-
cess engineering to solve the problem at its source. Palling In
this, the chemical plant manager must search out the most economic
treatment method. If the pollutants under study are not amenable
to economic treatment he must find a different ultimate disposal
method. The demand for better effluents then, has an immediafcfcvSin-
pact on the operation of a chemical plant. The Impact is the diver-
sion of manpower which Immediately results in Increased cost. Im-
proved effluents can seldom be achieved in the chemical industry
without increased costs.
One of the major problems of the chemical industry is the dis-
posal of the salts of hydrochloric and sulfurlc acids. The ammonia
soda-ash process must be able to use surface waters for the sodium
and calcium chloride by-product solutions which are inherent to
the process. Here is a case where the only known economic answer
is controlled disposal by dilution. It is either that or stop making
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the product. There are many processes In the Industry which result
in unwanted but necessary by-product salt production. Deep-well
disposal may be a short time answer for small volumes, but ultimate-
ly we must face up to the fact that controlled disposal by dilution
is the only method which will permit these processes to operate. It
is for this reason that the chemical industry has and will show a
great deal of interest in the establishment of water quality stand-
ards. We hope that such standards will be attainable under present
and near future production capacities.
The demand for better effluents will effect chemical industry
operations. It will require close attention to processing increased
waste control facilities and improved effluent monitoring.
Now, how about the relationship of chemical industry develop-
ment to water pollution law enforcement? The chemical Industry
expects that water pollution laws will be enforced. We expect that
restrictions will become more specific as technical knowledge is
increased. Expansion of existing plants may well be predicated on
our ability to tailor our waste waters to the water quality criteria
of the receiving water.
Sites for new production facilities are now carefully screened
for ultimate disposal capacity. If we cannot manage our wastes to
avoid a condition of water pollution at a particular site, we do not
build there.
I have recently spent some time in Washington,, and while I was
there I learned about a verse in the book of Isaiah which says:
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'''Come now, and let us reason together." Those of you who are either
Bible students or politicians will perhaps remember this verse.
Maybe It Is also a good one In the context of what we are discussing
here.
It seems to me that what we must at all costs avoid Is a pol-
lution battle pitting the agencies of the state of Michigan against
the industry of the state of Michigan. The keynote must be cooper-
ation. We must be willing on both sides to slt_ down and reason out
our problems together.
I must compliment the Michigan Water Resources Commission in
this respect, because we have always found them firm but reasonable
men. If you are willing to try to find a solution to your problem
you can usually work out a satisfactory solution.
We In the chemical Industry feel that cooperation is going to
be mandatory between ourselves and the state agencies as we work
to comply with the new demands of the state and nation, but we are
confident that we can sit down, and as the Good Book says, "reason
together."
The state agencies have on occasion aided in obtaining legis-
lation which will enable Industries to cope with their water prob-
lems. A good example in Michigan was the Surplus Water Bill -
Public Act 20 of 1964.
The chemical Industry must supply the chemical needs of the
nation. The Industry has grown at a much faster rate than the
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economy. We expect It to continue to grow. Where the Industry
locates Its plants Is decided by markets, transportation, and raw
materials. One of the Important raw materials Is water, water for
processing and water for dilution.
In summary, the chemical Industry does not fear enforcement
of water pollution laws. By working closely and cooperatively
with the State Control Agencies we have been able to resolve many
potential problems before the fact. As long as this cooperative
attitude Is maintained we have no fears. We have managed our wastes
In the past and Intend to manage our wastes In the future. Operating
costs will Increase and capital costs will Increase. These costs
can be minimized by proper site selection. In short, our people
believe that we can have a healthy, robust, chemical Industry and
clean water.
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THE RELATION OP WATER POLLUTION LAW ENFORCEMENT TO
INDUSTRIAL OPERATION AND DEVELOPMENT
By
Ford T. Shepherd
Vice President, The Mead Corporation
I am glad to have the opportunity to participate In these dis-
cussions because the pulp and paper Industry and Michigan are size-
able partners.1
In Michigan out of 17 major Industry groups the pulp and paper
Industry ranks the 9th largest In terms of payroll and employment.
In 1962 the total payroll was $127 million for 27,000 persons em-
ployed. In terms of the value added the pulp and paper Industry
ranks the 8th largest. In 1962 the amount of the value added was
$336 million.
In 1963 Michigan produced almost exactly 2 million tons of
paper and paperboard, and 730,000 cords of pulpwood were used to
produce almost 550,000 tons of wood pulp.
There are 55 cities in Michigan fcha& have some kind of a paper
mill or converting plant. Out of a total working force of 27,000
persons 10,800 are employed in the primary sector of the industry
and 16,200 In the converting sector.
In discussing "The Relation of Water Pollution Law Enforcement
to Industrial Operation and Development" I believe we should first
recognize and evaluate the relationship between the Michigan Water
Resources Commission and our Industry.
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I asked our people about this and here is what they told me:
"The Michigan Water Resources Commission to date has been
a very down to earth organization' and has based its water
quality criteria and demands on the individual circumstance.
'To my knowledge they have never asked fcr treatment for the
sake of treatment alone. They have been most cooperative
and patient with municipalities as well as industry but are
not hesitant in referring a case to the Attorney General?s
Office for action.l?
And we are hopeful, of course, that the Commission is able to
evaluate our cooperation and performance as satisfactory or possibly
a little better than that.
Now with respect to stream pollution enforcement ana new Indus-
try. Our judgment is that fair and equitable water quality require-
ments will not deter new industrial development. Conversely, new
Industrial development will be hindered if a state does not offer
good water resources.
But what about stringent water quality requirements for the
old mills that are polluters? This is the basic problem, of course,
and it points up the necessity of the state taking a long hard look
at its water resources policies.
Consider three examples;
(A) The small mill--small employment--small economic
factor in the community--but large polluter. In
this situation, It will be Just too bad for the
shareholders and the employees if this mill has to
clean up all of Its pollution. It may have no
alternative but to shut down.
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(B) Small mill—small employment, but a large economic
factor In a small community. To be realistic the
state must consider the closing of this mill in
terms of costs of unemployment benefits, additional
relief costs, and the economic loss to the community.
Now this example brings us closer to a realistic
appraisal of the cost of maintaining water quality
and we begin to realize the imppi!tance of determin-
ing whether that cost is Justified for improving
the water quality of the particular stretch of river
below the mill. The public benefits from the desired
Improvement should be estimated realistically.
(C) The large mill—large employer—extremely significant
economic factor In its community. Here neither the
state nor management can tolerate the closing of this
mill. Realistically, the mill, through its employees
and managers, has significant political voice. The
question here is what compromise will be made between
the profitable operation of the mill and clean streams—
or put another way—is the cost of clean waters to be
shared by the industry and the community (i.e., State)
and, if so, in what proportions and how? Here again,
the community has to decide what it is willing to pay
for clean streams or how clean it wants its streams.
It is very clear that water pollution control standards, and
enforcement add up often to very difficult decisions and nearly
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always to expensive solutions.
However, we have made a lot of progress to date and have a lot
of experience to build on.
Over the past twenty-odd years, the National Council for Stream
Improvement In the Pulp, Paper and Paperboard Industry has spent over
$5 million for research in the treatment of pulp and paper mill
wastes. Other groups and Individual mills have spent additional
millions on these problems.
That research has been put to use with gratifying results.
The total organic waste load of the industry today is actually lower
than it was twenty years ago, even though production has more than
doubled during that period. The organic waste load from the average
ton of paper has been reduced by 60$ and water usage per ton has
been decreased more than
Techniques have been developed and are now available to treat
most of our industry's wastes. Color continues to be a real problem,
however, but we have not given up. Future research activities will
be devoted to developing more sophisticated and higher-degree treat-
ment methods. More research attention is being given now to the
treatment techniques devised for the purpose of reclaiming waste
water so that it way be employed for a wider range of uses, both in
the mill and generally, as for municipal purposes.
Pulp and paper industry expenditures for waste treatment facil-
ities, as of the end of 1965, will total over $200,000,000. Eighty
percent of the mills in the United States have waste treatment
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facilities of one type or another.
Capital expenditures for these facilities In 1965 alone will
amount to $20,000,000. Maintenance and operating expenses are con-
servatively estimated at approximately $28,000,000, bringing total
expenditures for 1965 close to $50,000,000.
Because of greater production, higher cost of materials, serv-
ices and increased stringency of pollution control, waste treatment
capital expenditures, plus annual operating costs, will double with-
in the next decade. It has been estimated that an abatement program
for our Industry involving an 85 percent reduction in the BOD load
and virtually complete removal of settleable solids would require
an expenditure of $1 billion. If this were to be accomplished over
the next ten years the annual expenditure would be $100 million.
,If the pulp and paper industry were to spend $100 million per
year on new waste pollution abatement facilities, this $100 million
would be the equivalent of:
20$ of the net profit of the primary pulp and paper Industry, or
33$ of the primary pulp and paper industry dividends.
In attempting to assess the Impact of such large expenditures
on the industry, it is necessary to consider the distinct differ-
ence between the construction of a new mill and the installation of
abatement facilities at an existing mill.
In the case of the new mills, recent expenditures for waste
treatment facilities have amounted to 2^ - 4 percent of total mill
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costs. The average cost, for example, of primary and secondary waste
treatment at an unbleached kraft mill constructed today for $65 mil-
lion Is approximately $2 million, with annual cost of operation
(including operating expense, maintenance and amortization) of
$365,000.
The owners of such new mills carefully select sites where pollu-
tion abatement facilities can be installed at minimum cost. Increased
efficiency in the new mills may then enable them to absorb such waste
treatment plant costs and still remain competitive.
It has been the experience of the industry that most waste
treatment control expenditures in an old mill do not provide a suit-
able return on the dollars invested.
The question, then, facing our industry's top executives is
simply: "How can we, as community-minded citizens and as profes-
sional managers, solve the existing stream pollution problems of our
older operations?"
Obviously, the solution of the industry's problems, is of con-
siderable magnitude, not only from a technical standpoint, but also
fro** a financial standpoint. Equally obvious is the fact that a Job
of this sl^e cannot be done overnight.
We have learned from experience that a pollution abatement pro-
gram, however vigorously pursued, is necessarily a long range under-
taking. First, there is the investigation of available methods,
the application of these to pilot plant studies, and the preparation
of engineering plans and specifications. Secondly, there are the
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attendant problems of ordering, Installing of equipment and the
evaluation of results which is usually followed by modifications.
All of this necessitates months and sometimes years of continuing
effort.
To summarize, the remaining problems in our industry are:
1. The older mills — many of which may already be
marginal — with their many built-in technical
an engineering problems.
2. The $1 $11lion plus cost of pollution abatement
equipment and facilities.
3. The time required to do an economically sound con-
struction Job of this magnitude.
The solution of these problems Is essentially: an adequate
sum of money plus a reasonable and practical time schedule.
This is not peculiar to our industry. Other industries, as
well as municipalities, have the same problem. Governor Rockefeller
testified before the Blatnlck Committee on February 23, 1965, in
behalf of his State of New York which has 75$ of its streams
classified after 15 years of effort; he said:
"To meet the backlog of accumulated needs and new
needs through 1970 will cost $1,709 million for
local sewage treatment plants and interceptors.
... Elimination of industrial pollution will in-
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volve another $67 million... This is a six year
program."
Mayor Ivan Allen of Atlanta testified before the Muskie Com-
mittee field hearing on June 8, 1965. He too, reduced Atlanta's
abatement problem to dollars and years. He said:
"The overall inventory of capital Improvement needs
for sewer and water pollution control facilities, in
the metropolitan system amounts to some 90 million
dollars in capital Investment and represents the
major demand for all known useable capital improve-
ment funds during the upcoming ten-year period."
Our industry's problems are not unlike the problems of the State
of New York or the city of Atlanta. There is a difference, however,
In the available solutions: New York's costs and Atlanta's costs
will be borne by their taxpayers. Industry does not have such a
source of income.
So what about the future?
Under the Federal Water Pollution Control Act, as amended by
the Water Quality Act of 1965, Michigan continues to have the primary
responsibility and right to prevent and control pollution in Michigan.
Michigan can determine the water quality criteria applicable to In-
terstate waters or portions thereof in the state. Michigan can
develop a plan for the Implementation and enforcement of its criteria.
Michigan can determine the water quality standards for Michigan.
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And what about, the future for the pulp and paper industry?
First, the pulp and paper industry's philosophy, its perform-
ance and its accomplishments to date are pretty well known. The
industry believes that it has been good corporate citizens and it
is not about to turn into "bad" citizens in the communities where
its operations are located.
Second, the industry has every reason to want to do what is
right; it will do its very best to meet the practical requirements
of the regulatory agencies.
Third, the complete correction of the industry's stream pollu-
tion problem, as Indicated by the new standards provisions of the
Water Quality Act of 1965, represents expenditures of serious pro-
portions to the industry.
Unlike the usual capital investments made by the industry,
these expenditures will not generate earnings. For the paper indus-
try to absorb the full burden of this accelerated program would
seriously limit its ability to make capital investments in new
operating equipment and other facilities that, in turn, make for
a profitable expanding economy and full employment.
Consequently, the industry as a matter of fairness and equity,
will explore fully any and all financial means, including feasible
programs of governmental financial assistance, by which the general
public may carry a sizeable share of this greatly increased finan-
cial responsibility.
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Fourth, the industry must, of necessity, urge the appropriate
regulatory agencies—state, interstate and federal—to give full
consideration of the industry's problem in the development of the
standards and in the plans for their implementation and enforcement,
to the end that the agencies' requirements for compliance will pro-
vide for attainable objectives and adequate time schedules to
accomplish the objectives.
These remarks would not be complete without our thanks to Loring
Oeming and his associates for their help, understanding and patience1
over the years. And we want to assure the Michigan Water Resources
Commission of our desire to cooperate fully with its efforts in
establishing Michigan's criteria, in developing the plan of imple-
mentation and in improving Michigan's water resources.
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RELATION OP WATER POLLUTION IAW ENFORCEMENT TO
INDUSTRIAL OPERATION AND DEVELOPMENT
By
John A. Moekle, Associate Counsel
Office of General Counsel
Ford Motor Company
I was very pleased to receive Mr. Olds' Invitation to attend
this conference and to state an industry viewpoint. Although each
industry has its own peculia* problems, I suspect that all industry
shares a common viewpoint on water pollution problems—namely the
desire to cooperate closely with government to conserve and improve
the quality of this most Important, of Michigan's resources.
As indicated by the program, I am an attorney employed by Ford
Motor Company. Michigan Is the home of the automotive Industry and
contains automotive plants of many different kinds. Ford was se-
lected, I Imagine, to represent the automotive Industry not so much
because it is typical, but because the scope of its Michigan oper-
ations is probably broader than that of any other manufacturer.
In Michigan, the automotive industry not only assembles auto-
mobiles, it manufactures, stores and distributes all kinds of parts
and major components. The industry Includes hundreds of suppliers
engaged j.n supporting efforts. A catalogue of Ford - and all -
automotive manufacturing would be about as follows, with some indi-
cation of the wastes produced:
The fo'undry business is certainly .essential to our operations.
Engine;blocks and numerous parts are produced in the foundry process.
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Wastes from this process are typically settleable solids - sand -
and are collected and disposed of without affecting Michigan's
waters.
The simple forging or stamping operation of the blacksmith was
long ago replaced by hammers as tall as a four-story building and
weighing more than 200,000 pounds. These presses, without which
our Industry cannot exist, fortunately are not waste producers,
and again, do not affect our waters.
Engines are basic to automobiles and, in fact, it is sometimes
suggested that the engine is the primary product of any automobile
company, with the automobile simply being one application of the
engine or power plant. Engines must be carefully machined, and high
speed cutting tools require cooling fluids that must be used and ul-
timately discharged. Ford's answer to this problem has been the
extensive use of disinfectants ihat permit the long-time use and
reuse of soluble oil coolants with final removal and destruction
of the oil when the coolant can no longer be used.
All of the machinery in a manufacturing operation must be
lubricated to run. This means oil. After a certain length of usage,
oil becomes dirty and there must be some disposal of it. Ford's
answer to this problem has been one of good housekeeping - to col-
lect it in scrap oil drums for sale to salvage operators and in
some cases for treatment and later use as a fuel. When, in spite
of all precautions, oil escapes, it is trapped at various sewer
outlets by floating, pneumatic oil skimmers, and is removed from
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the water surface by traveling belt recovery units.
All Industry - and the automotive Industry certainly - has found
that the American public likes glitter, and glitter Is produced by
plating. Plating processes require chromium and cyanide, and dis-
posal of these useful chemicals poses very difficult problems. We
have In the past employed dilution facilities and also destruction.
New goals under consideration may require greater use of destruction
techniques.
What I have considered to date Is applicable to the whole auto-
motive Industry. My own company, however, Is unique In Michigan
because to a greater extent than the rest of the automotive Industry
It produces the steel that Is the raw material for our products.
The steel making process requires ovens In which to make coke.
Wastes produced from this process Include phenols and cyanides.
Under present orders of the Michigan Water Resources Commission,
Ford disposes of the phenols to a deep well, where it Is harmlessly
dispersed. Cyanides are contained within the coke making process
and are ultimately destroyed in the burning of coke oven gas.
The blast furnace is basic in the steel operation, converting
iron ore, coke and limestone to pig iron. Its wastes are Iron ore
dust coming from the blast furnaces themselves. These dusts are
recovered in giant thickeners and reused in the furnaces. With in-
creased use of processed iron pellets from Ford's Upper Peninsula
and Minnesota plants, It is expected that the volume of such dusts
will be greatly reduced.
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The open hearth furnaces which actually change the iron to
steel have been replaced at Ford by the Basic Oxygen furnace. This
high efficiency furnace, using forced oxygen, has no wastes that
might cause water pollution problems, and is, of course, extremely
effective in preventing air pollution.
At Ford we have rolling mills which take the steel in Ingot
form and produce sheet steel for our automobile bodies, These
mills produce oil wastes which are recovered by huge gravity separ-
ators Installed by Ford a number of years ago.
The sheet steel must be cleansed of scale by passing it through
baths of sulphuric acid or "pickle liquor" as it is called in the
steel industry. Ford has recently announced a major change In this
process which, when implemented, will completely eliminate the loss
of pickling liquor by use of other compounds.
Perhaps not so well known as our steel making operations is
our glass manufacturing plant where glass Is formed, ground and
polished. The grinding and polishing operations produce as wastes,
sand and polishing rouge. We have recently announced a major change
In glass manufacturing at our Dearborn Glass Plant through the use
of a float process. This program, In the actual construction stage
at this time, will eliminate the loss of grinding sand and polish-
ing rouge to the sewer system.
In brief, as most of you know, we have on the banks of the
River Rouge in Dearborn, Michigan, perhaps the largest and most
famous Industrial complex in the world, named, interestingly enough,
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after one of Michigan's waters - the Rouge plant - so that every-
thing mentioned above is produced on a giant scale. We at Ford
never tire of quoting statistics about our Rouge Plant, and perhaps
you would like to hear Just one: We pump 400 million gallons of
water a day from the Detroit River, through our Rouge installations
and into the Rouge River. This, dramatically, I believe, shows our
great Interest in the waters of Michigan and in preserving their
high quality.
Well, all activity begets problems, and problems, hopefully,
beget solutions. You can imagine from what I have Just outlined
that in the course of the last twenty years, I have had more than
one occasion to discuss our situation with the members of the Michi-
gan Water Resources Commission and its staff. And I have had a long
and, I believe - happy relationship with one of our prior speakers,
Mr. Olds of the Attorney General's Office, who as we all know is
probably our leading legal conservationist and protector of Michi-
gan's waters. I say "discuss" advisedly, because I think it would
be fair to say that the legal enforcement of water pollution regu-
lations applicable to industry in the state of Michigan has not
been a matter of combat or litigation, but a matter of reason and
cooperation, a working out of problems through the mutual efforts
of government and industry.
The tools for enforcement of water pollution regulations by
the State are plain and at hand. They have been discussed by Mr.
Olds in some detail.
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Section 1 of the Water Resources Act creates a Commission con-
sisting of the Director of Conservation, the Commissioner of Health,
the Highway Commissioner, the Director of Agriculture, and three
citizens representing industrial management, municipalities and
conservation associations. We are glad to have an Industry repre-
sentative in the Commission; but have never had any feeling that
the other members, in spite of their special interests, were in any
way hostile to industry.
Section 2 states that the Commission shall meet at least once
each month and shall keep a record of its proceedings. We at Ford
study these monthly records with great interest. The Commission
is required to protect and conserve the water resources of the State
and controls pollution of surface and underground waters. Query -
does it have an interest in the waters of our boat slip which are
entirely privately owned? Probably so, but we think, not so great
an Interest as in the public waters beyond.
Section 3 authorizes the Commission to bring any appropriate
action in the name of the people of the State of Michigan, either
at law, or in chancery, to carry out the provisions of the pollution
laws. The Attorney General may take charge of and prosecute criminal
cases.
Section 4 authorizes the Commission or any agent to enter at
all reasonable times upon public or private property to Investigate
alleged pollution, and Commission staff members have been occasional
visitors to our Rouge installations over the years, both ashore and
afloat. We await with some Interest their first descent by helicopter.
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Section 5 directs the Commission to establish pollution stand-
ards for waters of the state, Significantly, "in relation to the
public use to which they are or may be put." The same standards
are not applied to all streams, and no one has ever envisioned that
they should be.
Section 6 makes it unlawful to discharge, directly or indirectly,
Injurious substances to the waters of the state, and Sections 7, 8
and 9 spell out enforcement procedures.
Provision is made for appealing Commission orders to the law
courts.
Any person requiring a new or substantial increase over and
above present uses of water must file a statement with the Commis-
sion, and within 60 days the Commission must make an order stating
minimum restrictions. If this order is not acceptable, a hearing
may be demanded, followed by appeal to the courts if desired.
Any duly appointed agent of the Commission may make a criminal
complaint against a person violating the Act, and substantial penal-
ties may be Imposed.
So much for procedure under the Michigan Act. As I have stated,
we have had very little direct familiarity with the enforcement pro-
visions of it, no objections to it, and are happy to maintain our
matters on a discussion rather than a litigation or enforcement
level.
The Federal Water Pollution Control Act is also applicable,
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of course, to many of our Michigan installations. It provides
grants for research and development, and aid to governmental units -
not Industry - for construction of ant1-pollution devices. The
Federal Act is administered by a separate department within the
Department of Health, Education and Welfare.
It provides enforcement measures against pollution of inter-
state or navigable waters, and, in brief, describes a notice and
conference procedure, followed by hearing to determine if effective
progress is being made in the abatement of alleged pollution. Our
Company, and many others, in the Detroit River and western Lake Erie
region has recently participated in a special conference to consider
the quality of these waters and what can be done to improve them.
We are now engaged in numerous meetings with state authorities to
arrive at goals for this purpose.
As in the case of our direct dealings with the Michigan Water
Resources Commission under the Michigan Act, we know of no reason
why we cannot arrive at sound and practicable federal goals satis-
factory to everyone concerned. As in the case of all industry of
which I am aware, and it cannot be emphasized too strongly, we at
Ford have constantly tightened our waste disposal methods over the
years, particularly since World War II, to meet ever-strengthening
standards, and continually higher water quality goals.
From an enforcement and industry standpoint, I would say that
the most important provisions of any statute are the preliminary
conference and hearing portions which permit Industry and govern-
ment to get together and discuss problems, and solutions to prob-
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lems. We like very much to participate In the formation of new
goals and standards. If they are clearly and fairly expressed,
and are practicable, there will never be, I believe, any problem
of enforcing them.
I should like to mention in conclusion two respects in which
we believe government - both federal and state - might assist all
industry in achieving constantly strengthening water quality
goals:
By Act 250 of the Michigan Public Acts of 1965, 'if the State
Health Commission finds that a facility is designed and operated
primarily for the control, capture and removal of pollution from
the air and is reasonably adequ&tTfe far this purpose, the facility
will be exempt from real and per&onal property taxes, and from sales
and use taxes. The certificate of exemption may be withdrawn if the
facility is no longer primarily used for pollution control and is
being used for a different purpose.
I suggest that this exemption might well be extended to water
pollution prevention equipment to encourage at least to a small
extent, the expenditure of the large sums of money required to meet
presently proposed goals by private industry whose essential function,
of course, is to make the necessary profits to continue as a going
concern.
Legislation with a parallel purpose has also been suggested
in the federal field. In the last session of Congress, Senator
Ribicoff, former Secretary of Health, Education and Welfare, and
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well known for his Interest in the field of air and water pollution
control, introduced a bill (S. 1670) under which taxpayers would be
permitted to amortize over a comparatively short 36 month period
certain costs incurred to abate water and air pollution. Rapid
amortization would be dependent on certification by the Secretary
of Health, Education and Welfare of compliance with minimum perform-
ance standards in furtherance of the Federal Water Pollution Con-
trol Act or the Clean Air Act as the case may be. Certification
would also be required by the state water or air pollution control
agency.
This bill was not enacted in the last session. If enacted,
it would be helpful to industry in meeting the costs of water and
air pollution prevention.
Again let me express my appreciation for this opportunity to
address the conference. The automotive industry, engaged in a
giant productive effort, also has found Itself confronted with sub-
stantial problems of waste disposal. The resources and initiative
of this great industry are fully available for the satisfactory
solution of these problems, and I am confident that substantial
progress will continue to be made.
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SUMMARY REMARKS
By
Attorney General Frank J. Kelley
We are very gratified at the turn out here today and just to
summarize briefly—we started this morning with Representative Snyder
and Senator O'Brien who indicated that the Michigan legislature by the
enactment of Senate Bill No. 69 has told Michigan municipalities and
industry to stop polluting our state's water resources. They have
also indicated that the legislature must now consider the ability of
local municipalities to pay for pollution abatement facilities and
that attention must be given to the problem of costs, especially with
respect to Michigan's small villages and towns.
Mr. Louis C. Andrews, representing the Michigan Municipal League
stated, "this conference will indeed b$ a 100$ success if its results
do go down the drain." Mr. Andrews reiterated the problems involved
in financing and levying taxes at the local level .of government. He
stated that "we need help in building and operating needed treatment
plants and sewer systems." Mr. Andrews outlined existing municipal
ordinance control of water pollution and spoke of municipal relations
with local industry regarding the use of municipal sewer systems for
the disposal of industrial wastes. He has indicated to this confer-
ence that the direction in which Michigan municipalities are going
today is to do whatever is necessary to take care of locally produced
municipal and industrial wastes.
Mr. Joseph A. Parisi, representing Michigan township government,
has stated that "the time has come when we all want to do something
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about water pollution In Michigan and In the nation." He has indicated
to the conference that in our pollution abatement efforts 4 major things
have to be kept in mind. First - we have to have enthusiasm; secondly,
we have to benefit by and rectify past mistakes; thirdly - we must
temper our desires with good judgment and finally - we have to be sure
that what we are doing is absolutely right. In concluding, Mr. Parisi
has indicated that Michigan townships want to do what is necessary to
abate township water pollution problems. While townships are
authorized to build abatement facilities, what is needed are additional
statutes which will aid in township financing and enforcement of water
pollution programs.
Mr. Chester C. Pierce, of the Wayne County Drain Commissioner's
office, speaking from the standpoint of Michigan county government,
discussed what Michigan county health departments can and are doing
to abate water pollution. He also discussed a recent amendment of the
State Water Resources Commission Act relative to bonding by townships
to finance water pollution facilities. He hag indicated that in his
opinion Michigan townships under the present State Constitution can
now issue court order bonds exceeding the 15-mill limitation. Mr.
Pierce also discussed the County Department of Public Works Act and
its application by Michigan counties to the problem of water pollution
abatement. He further suggested to the conference that Michigan should
initiate a financial program such as the one recently suggested in
New York State. He concluded by saying that "the time to move ahead
has come and we should move now to correct our pollution problems."
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Mr. Murray Stein, representing- the Federal government has this
morning Indicated that the federal authority In water pollution control
has changed drastically In the past few decades-. He has stated that
water pollution- activities are usually rontroverslal and that water
pollution control Is an evolving legislative process mirroring public
opinion. In the field of water pollution control this evolving
process is taking quite a period of time because of the complexities
involved and the end results hoped to be achieved are still not in
sight. Mr. Stein further has indicated to us that the object of water
pollution control is not to close industry or to stop community growth.
Quite to the contrary, the challenge of water pollution control is to
allow continued industrial and community growth and still maintain
good water supplies for the legitimate uses which we are endeavoring
to protect. He indicated this is what water pollution control is all
about, and we must recognize that this is only one problem in our
national life. He has told us that municipalities and Industry are
responsible for their own wastes and that it is not a question of not
being able to afford pollution control, rather the real question is are
we able to afford to do nothing about controlling water pollution.
Mr. Stein has further indicated that, as we all know, Michigan's
economy is closely tied to her water resources and he has Indicated
to the conference that Michigan, and other states, cannot afford NOT
to effectively tackle the problem of water pollution control.
This afternoon Dr. Leon W. Weinberger, representing the role of
the scientist in enforcement of water pollution control, pointed out that
this is not the role of the government, state or industrial scientist
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but of all scientists working together to develop facts upon which
decisions may be mab> by legislators and governmental authorities.
Bight now, Dr. Weinberger stated, we have scientific answers to
clear up many of our pollution problems, but the role of the research
scientist is to develop new methods for problems to which we have no
answer. TJie scientist in water pollution control knows that he does
not deal with absolutes, but rather, with averages, ranges, and
probabilities. It is a matter of scientifically interpreting data.
Dr. Weinberger said the scientist is a member of the water pollution
control team whose key role is to determines
1. The relationship between impurity and water uses
(establishment of criteria or standards).
2. Measuring the concentration of impurities in water.
3. What happens when Impurities are introduced into the
water environment.
4. Striving for new treatment methods to combat water
pollution.
Dr. Weinberger said that any amount of wastes can be removed but
that does not mean that it would be an engineering reality or economic-
ally feasible.
Thomas J. Powers of the Dow Chemical Company, representing the
chemical industry stated that in the industry's viewpoint Michigan's
water pollution control laws have been energetically but fairly enforced
Mr. Powers also stated that the chemical industry is a basic yet very
complex industry and is constantly on the alert to its pollutional
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problems. In the past the industry has sponsored seminars and work-
shops to train personnel to meet its various problems along this line.
He said controlled disposal of wastes by dilution is the only method
by which the chemical industry can dispose of its by-product wastes.
Because of more specific, future governmental control the chemical
industry expects to cooperate and reason out its problems to meet
and comply with water pollution control requirements. Mr. Powers stated:
"We believe we can have a healthy and robust chemical
industry and clean waters."
Mr. Ford Shepherd of the Mead Corporation indicated that the paper
industry and the State of Michigan are partners. He feels the Michigan
Water Resources Commission has always realistically approached the
pollution problem of the paper industry. In the industry's viewpoint
the state must evaluate each individual situation in the light of the
public well being.
Waste treatment and costs of the paper and pulp industry are
expected to double in the next few years.
Mr. Shepherd states we must differentiate between old and new
mills. New mills are located where they can more adequately cope
with waste problems and still be competitive.
Mr. Shepherd concluded that the paper industry will continue to
cooperate with the state and will explore all feasible economic means
of meeting its pollutional problems.
Mr. John Moekle, representing the Michigan automotive industry,
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described .the- jtrftz&pu* operations of the Ford Motpr Cqmpany and ye.-'
«ulting wa^tcs^and the manner in which the probiems are being solved.
Four nundred million gallons of water are being pumped dally
for i-he Rouge Plant.
Without .litigation the Ford Motor,.Company has worked amicably
with the Michigan Water .Resources Commission and Is vitally inter-
ested in working toward the establishment of water quality criteria.
Mr. Moekle stated that both federal and state governments can
assist industry, in achievina better water quality by:
1. uranting tax exemptions on water pollution control
equipment, ana
2, prantlng rapid amortization on pollution control
facilities.
So it is our hope that the spirit that was expressed here today
will continue. I can assure you from a government standpoint that
cooperation between the various state agencies, primarily the Michi-
gan Water Resources Commission, the Department of Conservation and
our office will continue. We hope this is a first in a series of
meetings and that we will have the benefit or each other's counsel
in the future. Thank you all for coming, and we stand adjourned.
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QUESTIONS AND ANSWERS - A.M.
Question:
Mr. Stein:
Question:
Mr. Chairman, I would like to direct this to Mr. Stein.
What is the possibility of making our waste productive,
such as fertilizers and by-products?
There is a possibility - I wouldn't count on it.
This is a chimaera I have heard year after year and
as I pointed out I have been in this business since
19^8. You have to pay something for waste treat-
ment. Occasionally a city or a plant will hit the
jackpot and make it work. But this is like alchemy,
if you expect it to be a generalized thing. We had
a situation in Milwaukee. One of the reasons they
could do that is they had a lot of brewery waste.
When the breweries were on strike it didn't work.
The Hiram Walker plant of Peoria has done it. Don't
let a few freakish or outstanding examples change it.
In some cases you can ameliorate the cost of waste
treatment by recovery processes but don't expect that
to make a profit.
Mr. Chairman, I would like to direct a question to
Mr. Stein. In reference to municipalities and
industries, you used the statement "they must clean
up their wastes." Then, I believe you defined it in
stating that the effluent discharge from these enti-
ties should be traced and determination be made
whether or not it was causing any damage. This
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would Infer to me that there Is a degree of cleanli-
ness Involved dependent upon the particular industry
or municipality and where It is discharging its
effluence. Is this so?
Mr. Stein: One, I was speaking Just for the federal law on that
when I talked about those procedures—federal enforce-
ment procedures. Some state laws have provisions
just banning discharge.* * *Now when you speak in
terms of cleanliness, in dealing with the federal law,
we have to show a damage to health and welfare. How-
ever, and I would like to make this abundantly clear,
I recognize that we have to deal with the facts of
life, and we have to assume that every stream has
what is called in the trade, absorptive capacity.
But I don't think we should utilize the stream in
all cases to its maximum absorptive capacity and not
leave any leaway. Once we do this we find ourselves
in a position where we are almost on a treadmill.
It is the Alice in Wonderland business. You're run-
ning, running, running and staying in the same place.
You Just clean it up. As soon as you get a population
growth, expanded industry or a new industry, you pol-
lute it all over again. I wonder why we should not
take the same attitude as most of us do about our
daily bath. Take it whether we need it or not. Or
when we clean up a stream, that we don't take the
attitude perhaps that some of the people do in other
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Question:
Mr. Stein:
industries, such as road building, automotive or
bridge building, and over construct Just once —
Just a little." If we did that we may have more
leaway and we may be in better shape. I think
that all this construction in an expanding economy
is fine. We used to use the old l4th Street bridge
to go across the Potomac about 50 years after they
thought it was obsolete. It was still up because
it was built so "strongly, and I think if we did
some of that kind of thinking in water pollution
control, we might be in better shape.
Mr. Stein, I ^understand after reading an article in
an engineering magazine, there is a man in the water
department in Washington who has available many,
many methods of disposal of industrial and municipal
wastes. Some of them are tried and some of them are
not. Are you acquainted with any of these methods?
We're acquainted with all of them. As a matter of
fact, Dr. Weinberger is here and we work very closely
with his office. I don't want to disillusion you,
but there is no magic way you can get rid of the
"stuff." If there is anything that can possibly
work and we can propose it, or put it forward, we're
going to do it. We are faced with a very, very dif-
ficult problem and I agree with you completely that
we have to take wastes out. We have explored ano
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and are exploring every possible method to do this.
This is not an easy task. There is no device that
is known to any agency of the federal government
that we have not examined and explored thoroughly.
Our scientists have not yet come up with any magic
answer and as soon as we do, we'll tell Mr, Oeming
about it, and if he hears about it first, maybe he
will tell us.
Mr. Olds: The hour is drawing nigh for lunch and this after-
noon we have the program which includes the role of
the scientist and industry. We hope all of you will
return. We are adjourned until 2:00 P.M.
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QUESTIONS AND ANSWERS - P.M.
Mr. Karmann:
Mr. Moekle:
My name Is Joe Karmann. T nnw live at Ypsilanti,
formerly of Dearborn, and I am affiliated with the
Izaak Walton League of America, an organization
representing the defense of soils,, woods, waters
and wildlife. My heart swells with pride to hear
Mr. Moekle1s report on the activities of the Ford
Motor Company. I do feel, as the first mayor of
that city and the one of two pther terms of office
in that capacity, that Mr. Moekle failed to mention
the establishment of one of the finest sewerage
disposal plants not only in Michigan but in the
country, whereby the city did participate in its
recommendations and construction in the first place.
I think Mr. Moekle probably could have said a little
bit about the scientific analysis of the solution,
if you want to call it that, which passes through
that disposal plant into the River Rouge and on its
way to the Detroit river and the cities and towns
below. I thank you for your kind attention and the
opportunity to speak. Mr; Moekle, I congratulate
you.
We're delighted to give credit where credit is due
and I certainly did not .intend to omit the mention
of any significant accomplishments.> I'm glad you
brought it up, sir.
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Mr. McDermott: My name is Jim Mcl>ermott. I'm from the attorney
general's office of the State of Wisconsin and T
am directing my question to Mr. Shepherd. We have,
as he is well aware, considerable paper industry in
our state. I thought your statement was very inter-
esting and I guess I interpreted it correctly that
perhaps the paper Industry would be willing to accept
state or federal assistance in establishing the neces-
sary sewage treatment facilities in connection with
the industry. Do I take it, Mr. Shepherd, that at
least the company for which you speak would be will-
ing to accept the inevitable measure of federal or
state control that would go with that financial
assistance?
Mr. Shepherd: We knew, of course, that this statement would provoke
some discussion. In the paper industry we have
thought about it a great deal and have considered
every angle. As you may know during the Korean situa-
tion there was a necessity certificate program. In
other words, you got fast write off for building
plants, etc. for the war effort. In the paper industry
it was to get pulp capacity, and you could get a neces-
sity certificate maybe for 40 to 60# of this project,
and a great many plants were built. Now there has been
no unanimity throughout our industry as to whether or
not the fast write off was really an incentive. There
is a great debate on this question right now. Two
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Question:
Mr. Shepherd;
weeks ago in New York the Board of Directors of the
American Paper Institute considered this question,
and —Well, I think I said it all in that "Now we
will explore fully any and all financial means in-
cluding feasible programs of governmental financial
assistance."
Mr. Shepherd, could I ask you Just one more question
in connection with this same item? Was there any
discussion at the meeting you just mentioned of the
legality of aid to private industry regarding the
use of tax monies for a public or private purpose?
Well, I know there was a great deal of discussion.
What the lawyers finally will determine, I don't
know. I am sure that most of you have heard rumors
that come January there is to be a stream pollution
abatement program modeled along the idea and concept
of the highway program of 1956. When I heard this
about the first of August, I said "Boy, we're not
talking about millions, we're talking about billions."
The man who informed me of this said "That's right."
Now, if you will think a little bit about the highway
program. I was not a student of that legislation,
but I read a good deal about it. As you know, this
was a .massive attack on the highway situation. It
started out to build and a law was passed, to build
4l,000 miles of road which would cost 4l billion
dollars. Uncle Sam was going to pay on a 9-10 basis.
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He was going to pay 37 billion and the states would
pay 4 billion. This was on the interstate program.
And then there was the ABC program ,to build the roads
within the states and the federal government, and the
states, I think, split this 50-50. Now in the first
part, the interstate part, the federal government
runs it. They dictate the size of the roads and all
of the specifications and everything. Under the ABC
program, the state determines it. To do this there
was a trust fund established. The trust fund was to
raise, I think it's right at 15 billion dollars and
15 billion dollars. Of course this is excise tax
on highway users — 4 cents a gallon on gasoline, I
think, 10 cents per pound on rubber that goes into
tires and tubes, so much on buses and trailers and
trucks, and I think, come January, it starts on so
much a gallon on oil and some other things. Now,
if this is the program we are going to get in Jan-
uary and if industry has 50# of the pollution prob-
lem, as we are told, and if this is a massive attack
to wipe out pollution, it would seem to me that this
question is going to become academic as to whether
or not Uncle Sam will pay some of industry's bill.
If the federal government financed only the munici-
pal stuff we would still have, quoting again, one-
half of the problem left. So really, I don't know
where we come out on all of thls> but I think all of
this has to do with the same basic question that you
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asked. Thank you, Mr. Chairman.
Mr. Roberts: Mr. Chairman, my name Is John Roberts and I am
from St. Clair Shores. I would like to commend
the attorney general and the others who are re-
sponsible for this conference. I hope this is the
very beginning of a strong concerted effort on the
part of public officials, citizens and industry to
get to work on this problem. I live in an area that
some of us refer to as a catch basin of drainage
from a county area down into one of our major lakes.
We have had very serious problems over the years and
there are two questions I would like to ask if I may.
Number one is directed to Dr. Weinberger. I have
heard references to a new system of dual filtration
based on, I believe, using coal as a filtration med-
ium. Prom the little bit I've heard, It seems to
offer some very drastic innovations in this field.
What are the immediate possibilities of this, and
if it is a possible solution to some of our problems,
are there any serious drawbacks to it?
Dr. Weinberger: I'm pretty sure the process to which you refer is
under development by the office of coal research of
The Department of the Interior. Office of coal re-
search is interested in finding uses foi* coal. This
process is one in which coal is sized and used as a
filter, and after filtration, the treated waste
passes through some additional coal where absorption
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/
takes place. This is still in the laboratory stage.
Prom a point of view of performance, I might say
there is no reason why this process should not work.
Filtration of sewage is something that is rather well
understood. Even the absorption properties of coal
are well understood. This is at the stage, however,
where there is virtually no — well, there is not
adequate economic data which would indicate to you
what such a plant might cost or what it would cost
to operate such a plant. Furthermore, the current
status indicates that it is now going from the lab-
oratory stage to the pilot plant stage. It will be
another year or two before you get results from the
pilot plant at which $b±nibrthe economics will be
clearer.
Mr. Roberts: The main point in bringing this up is that there is
so much controversy in the Wayne County Detroit area
now concerning primary and secondary treatment based
on the results of the U.S. Public Health Service
study and survey which were released at the June
conference at Rackham Memorial. I feel the director
of the Detroit water supply system took a very
righteous stand claiming that the Detroit system
was far superior to anything else. Yet when the
U.S. Public Health Service expressed its desire
that the system provide both primary and secondary
treatment, the first thing that was said was that
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It cost too much money, and we1re back where we came
from, that we don't want to spend the money. That's
why I was trying to relate this new system to the
present method of primary and secondary treatment
to see if there is any possibility that it can ever
be used in the near future to resolve this necessity
of primary and secondary treatment.
Dr. Weinberger: As I have indicated, the engineering design of this
particular process is certainly a year or two off.
Mr. Roberts: I see, thank you. The next question I would like to
direct to anybody who can answer it. In the area
where we live, two facilities have been constructed.
One has been constructed, and one is under con-
struction. Many people in our area feel this is
only a part-time solution to a very serious problem.
We talk about combined systems of storm and sanitary
effluent control and at the present time we have two
combination systems draining effluent into Lake St.
Glair. A third system is going to be added. To
alleviate this problem to some extent, retention
basins have been built to temporarily withhold the
flow in these systems during a one-year rainfall.
If it rains more than one year, the excess Is still
dumped into the lake. If the one-year rainfall
terminates at the end of that one-year fall, then
what has gone Into these retention chambers is
pumped back into an interceptor and then goes into
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Wayne County. I haven't seen any Instances where
these facilities have been built to any extent
around the country. These two facilities are cost-
ing around 5 million dollars. True, they are help-
ing to some extent. I would like to hear some com-
ments from some of the experts as to whether the
economics of spending 5 million dollars on two such
basins which are not answering a problem,, really
Jibe with our national efforts of trying to control
municipalities dumping into our fresh waters. Is it
economically feasible to spend 5 million dollars for
these temporary — I will refer to them loosely as
tanks or retention basins — when it appears there
were methods and are methods available to prevent
using these two drainage systems at all for sanitary
flow?
Mr. Purdy: Well, Mr. Roberts, I'm not completely familiar with
the system although the consulting engineers' re-
ports have been to the effect that it is not econ-
omically feasible to go back into the system and
completely separate them at the present time. As
far as knowledge regarding other states that might
be using this same approach, I believe New York has
built several water retention basins at the present
time. There was a recent article where Chicago is
considering the storing of storm water flows in
deep cavities under ground, producing power at the
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Mr. Roberts:
Mr. Purdy:
Mr. Olds:
time of the storm but this is where we are using
some of the tools and knowledge that we have on
hand today to control an existing problem. Where
we are not postponing a correction of the problem
until we have an ultimate answer. This may not be
the ultimate answer but it is at least a partial
answer to the problem today and we are making use
of the knowledge and information that we have.
Well, your department has been most diligent in
pursuing this problem. I'm well aware of all of
your efforts and I've talked to you many times. I
do know that you've Issued decrees and orders to
require communities to separate their systems. In
some instances you have given them an option to
separate or treat them in a combined system, and I
was Just concerned regarding this particular problem
as it affects us. It aggrieves us because it in-
fects our whole lake.
In a new community it is possible to go back into
the system and separate where in some instances, in
a completely built-up community, the cost is much
different.
I might just mention that recently the health de-
partment was involved in a law suit in the southern
part of the state where they authorized building
these retention areas. The downstream riparian
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didn't like the idea that these pools or ponds would
be released In the fall and the heaped-up polluted
water would go by his home. He went to court and an
injunction was Issued in his favor.
Mr. Wolin: Mr. Chairman, I am Arthur Wolin of Dearborn repre-
senting the Isaak Walton League. On the other side
of the ledger I'd like to direct this question to
Mr. Shepherd. We heard a lot about millions and
billions it would cost to eliminate pollution and
the possibility of closing mills. Well, do you know
that beaches have been closed, rivers you might call
closed, lakes that could be called closed, besides,
the property values have decreased to a point where
it is almost impossible to get rid of some of the
cottages because of pollution. Now, can we place
a value on that or a loss on that? That runs into
terrific figures. I think that should also be con-
sidered. With all the knowledge and brains we have
in this country, I think there can be a satisfactory
solution to everybody. As a barefoot boy I can
remember tramping all over the area where the Ford
Motor Company is now located and fished all along
the banks of the Rouge River. Think of the recrea-
tional values to the public if you could walk to
that river, the Detroit river, or any place. The
people would need no transportation, they could
enjoy themselves. You can't place a price on a
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Mr. Purdyj
Mr. Howe:
Mr. Olds:
Mr. Howe:
recreational or aesthetic value to the public. I
think we should take whatever help we can get and
do the best we can and eliminate this source.
Well, I agree with you, I don't know what else to
say, only that I agree with you.
I'm Prank Howe and I'm from St. Glair Shores. I'm
interested in the gentleman's explanation of
"economically unfeasible." I'd like to see some
figures of comparison. This doesn't satisfy me.
We spend one million one hundred thousand dollars
for retention basin that works fine as long as it
doesn't rain. When it rains, I see the evidence in
my canal in my back yard, and it isn't enough for
me to have Just a simple statement from somebody
to say it is economically unfeasible. We're pol-
luting our own nest, we're polluting this lake,
and we're polluting the Detroit river, and then
we are bringing it in from the top of Belle Isle
back to ourselves. This doesn't satisfy me at all.
I'd like to know how unfeasible It is?
To whom are you directing your question?
The gentleman who said it was economically
unfeasible. I'm only talking about terms of
money. This is a temporary expedient, I think, a
way to get somebody off the hook.
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Mr. Purdy:
Mr. Howe:
Mr. Purdy:
Mr. Howe:
Mr. Purdy:
Mr. Howe:
Mr. Purdy:
352
I believe you probably live on the Milk River drain?
No sir. I live Just north of the Martin drain.
Well, the Martin drain retention basin Just went
into operation this past year.
I realize that and I still see the evidence in my
canal when it rains good and hard.
We are still in the learning process on this. I
said the Milk River because this is the first one
built in the state, very possibly the first one
that was built in the country and . . .
I understand they'd used those gates once. Is
that right?
I can't tell you about the operation on this. It
is under the supervision of the state health com-
missioner. Mr. Pierce is here, he can answer some
of your questions much better than I. As far as
the review of the consulting engineers' reports
and the cost and so forth, this has been investi-
gated. I can't quote you the figures. I don't
believe this is the meeting to go Into those figures
but we would be most happy to explore this further
wi1;h you at some other time. I don't have this
formation to answer you today.
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Mr. Nichols: My name is Lester Nichols and I'm from tne Michigan
Department of Economic Expansion. I would like to
direct my question to Dr. Weinberger. Do you feel
that we will eventually be able to treat waste to
the point that we can use waters for a broad range
of uses or must we resign ourselves to the fact
that some waters will have a priority of uses?
Dr. Weinberger: That's quite a question. May I take this oppor-
tunity to comment on the last question which I
think is somewhat related to this, I think the
gentleman makes a very Important point and one
which apparently I did not make very effectively
in my presentation. One of the things that I sug-
gested Is that the scientists* role in this thing
is to present various alternates with the cost for
accomplishing then, so the public can make this
decision. As was pointed out, and I think Mr0
Shepherd*s comments after mine pointed up that
what we are talking about to a large extent is
the amount that we are willing to pay--not we as
scientists or we as enforcement people, but we as
taxpayers0 And I think In fairness to us individ-
ually, we ought to be presented with the various
alternatives with the price tag for that particular
solution,, Now to answer your question. We are
very close to having the technology which will
enable us to take a waste water and to reuse this
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water virtually Indefinitely. We are so close to
this that in some parts of the country this is al-
most being done. In southern California, waste
water — and this is related to a question that
was asked this morning — did we foresee the time
when sewage might be treated for * profit? This is
a rather interesting question. I would have
answered the question a little bit differently from
Mr. Stein and point out that it is conceivable that
the water portion of our waste water may be so im-
portant that the water we recover from waste treaf-
ment may make this whole thing economically sound.
There are places in southern California where they
are taking sewage, paying for it and then selling
the treated water for other uses. So, in answer to
your question, the answer is very definitely — yes.
We will have the technology that will enable us to
take the waters, treat them and use them for any
other purpose for which, again, we are willing to
pay. I think this is as simple as I can reduce
your question. That if we are willing to pay for
this, we can accomplish what the gentleman rrom
Ford and the others have all indicated. There is
no difference of opinion here. Thank you.
Mr. Voigts: My name is D. L. Voigts and I represent the Pack-
aging Corporation of America from Filer City. I
would like to ask Dr. Weinberger my question.
130
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355
What is being done in the so-called tertiary treat-
ment of both municipal and industrial wastes in
which we will be forestalling, or let us say, pre-
venting a problem which unvariably will develop,
and that is the nitrogen and phosphorous compound,
the so-called nutrients, which are now being left
in most treated waters. I am referring to second-
ary treated waters. I would like to know how much
time is being spent on this research and is there
a feasible solution to this?
Dr. Weinberger: The federal research budget in water pollution
control research for this fiscal year is approxi-
mately five and half million dollars. This is the
research money available to study all of the re-
search needs in the field of pollution, ranging
from the analytical problems, the cause and effect
relationships, the various treatment, the epidemiol-
ogy, the toxicology, etc. The matter of treatment
for the removal of nitrates and phosphates is one
which is receiving increasing attention from our
research staff both in the house and through grant
mechanism, which is another form of research support
coming from the federal government. This grant
supports many researches in Universities. The
problem of removal of the nitrogen and phosphorous
is one which has only recently received the atten-
tion that many of us feel it should have received.
131
-------
356
Methods are being explored to increase the effect-
iveness of biological treatment for removal of
these nutrients, chemical methods for accomplish-
ing this. Dr. Rollick of the University of Wis-
consin has over the past years worked on an effect-
ive process for chemical removal of phosphates
which is "being used in a full scale plant in Lake
Tahoe, California. There are other methods which
we are exploring for the removal of these nutrients.
These involve various processes including a number
of those which have been developed, by the'office of
saline water. So, in answer to the question, we
are in the laboratory and as soon as this is suc-
cessful, moving into the pilot plant, and then
finally in the field evaluation stage. There are
many major problems of water pollution needing re-
search. We are trying to distribute our research
effort to come up with the best balanced program.
I might take this opportunity to put in a plug for
one of the new laboratories which will be built in
Ann Arbor. I think there is a point which has not
been brought out at this meeting, and that is the
interim between the time the public has been made
aware and has become somewhat familiar with prob-
lems of water pollution, and the time that it takes
to get a major program underway. In 196l, four
years ago, congress authorized the construction
132
-------
Mr. Olds:
Mr. Moekle:
357
of 7 new field laboratories to engage in technical
assistance and research. These laboratories are
currently still under construction. Pour of them
will be completed within the next 3 months. We
will then begin putting the research effort in
this problem of nutrient removal and all other
problems. So, there is this time lag between
recognizing the problem and coming up with answers.
Incidentally, there are many more laboratories now
beyond that original seven. One of these will be
in Ann Arbor and at that laboratory we will be
concentrating on the problems associated with the
Great Lakes—nutrients being one of them.
Mr. Moekle would like to supplement his remarks.
I simply thought that perhaps in this very serious
conference there might be Just a moment for a touch
of sentiment. Mr. Stein said that he had been in
this activity since 1948 and I have been in it
since 19^6. I beat Mr. Stein into it by two years
and the great society by 18 years. And I've met
a great many wonderful and very capable people dur-
ing that period. We've heard a lot of talk about
lay people and professional people this afternoon
who represent a lot of different Interests—chem-
ists, medical doctors, public health personnel,
lawyers, engineers and all the rest. All of us are
133
-------
Mr. Olds:
Mr. Adams:
358
lay people to a very great extent because very
few of us encompass the entire field of water
pollution. There is, however, one person in our
midst who is a true professional. He is an engineer,
he is a lawyer and a scientist. He knows a lot about
public health and a great deal about legislation.
When he left us the World Health Organization
recognized his talents and has in the last few
years sent him over a great deal of the world.
He has been mentioned by name several times at
this meeting and I thought he ought to stand up
so that you could see the one true pro in our midst-
Milt Adams.
Maybe it is appropriate at this time, Milt, that
you say a few words. Tell us about some of the
things you've seen in the rest of the world.
Well, it is a pleasure to be invited to" this
meeting today. I wouldn't expect it to be right
unless everyone put his best foot forward and I
think that is what is being done. As I was tell-
ing Larry Oeming, when Mr. Shepherd was stressing
the problem of the small mill, I remember a little
one down in the southeast corner of the state that
protested before our Commission that if they were
required to cut their fiber losses they would go
out of business. They would close up. A few
-------
359
months later after this same plant had put in the
facilities that our boys had recommended, they
turned back to our staff and said, "Why the devil
didn't you make us do this before—the money we've
saved." So this Is an ever growing problem.
When I was in Caracas in July, the sole purpose of
sewage disposal there was to reclaim out of the
sewage of that great city enough useable water
for industry and agriculture so that they could
develop in that valley below Caracas. There was
no mention about public health, nothing about
fish life but it was water with which to exist.
And, that is the challenge we face in many parts
of our country as well as right here in the United
States. It's nice to be with you.
Mr. Olds: Mr. Kelley would you please close the meeting
with a short summary?
135
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360
1 STATEMENT OP PRANK J. KELLEY
2
ATTORNEYS GENERAL CONFERENCE
3
"Chicago, Illinois, November 3, 1967. The four
4
Attorneys General of the States bordering Lake Michigan
5
met today in Chicago in a common effort to find an effec-
6
tive solution to the critical problem of water pollution.
7
"Attorneys General Prank J. Kelley of Michigan,
8
Bronson LaFollette of Wisconsin, John J. Dillon of In-
9
diana and William G. Clark of Illinois attended the con-
10
ference.
11
"The Attorney General of each State is the
12
chief legal officer of their individual State and as such
13
haa the ultimate responsibility of seeking legal sanctions
14
against polluters.
15
"No single State can effectively solve this
16
problem.
17
"Each Attorney General indicated increased
18
liaison with the appropriate administrative agency vrlth-
19
in their own State.
20
"The Attorneys General will compile a list of
21
polluters within their own States. The four Attorneys
22
General will exchange this information and act as a
23
clearing house for the information to insure that every
24
source of pollution will be brought to the attention of
25
the appropriate enforcement agency.
-------
361
l I STATE!*ENT OP PRANK J. KELLSY
2 "The Attorneys General stated that they are
3 eicplorin^ the possibility of all four States acting in
4 concert as plaintiffs against major polluters.
5 "They indicated that the most effective solu-
6 t:on would be through cooperation of the Attorneys General
7 representing their States rather than to institute time-
8 consurr.ins, involved lausuits betvreen States.
9 "Further meetings will be held by. all four
10 .attorneys General in Indiana, Michigan and Wisconsin to
H deal with specific problems."
12
INTRODUCTION
13
UNIQUE CHARACTERISTICS OP GREAT LAKES
14 PRESSING PROBLEMS OF POLLUTION ABATEMENT AND
15 WATER RESOURCE MANAGEMENT
16 ROLE OF GREAT LAKES IN PROMOTING NATIONAL
17 GOALS IN MARINE SCIENCES
is
Basic Research
19 Physical Nature of Currents
20 Water Masses
21 Ice Cover
22 Land Drainage and Water Quality
23 3u t ro pnicat1on
24 ! Fish Population
25 i Invasion of Marine Species
-------
1 ' STATEMENT OF PRANK J . KBLLEY
2 Model Studies
3 Regional Environmental
4 Interaction Between Water and Air
5 Engineering and Development
6 Surf ace Vessels
7 Submarines and Man -in -the -Sea Project
8 Synoptic Survey and Instrumentation of
9 Commercial Veasela
10 Testing of Marine Equipment
11 Education and Training
12
13 STATEMENT BEFORE THE CHICAGO FIELD HEARINGS
14 BY PANELS ON BASIC SCIENCE AND ENVIRONMENTAL
15 PROBLEMS, OF THE COMMISSION ON MARINE SCIENCE,
16 ENGINEERING AND RESOURCES
17 David C. Chandler, Director
Great Lakes Research Division
18 University of Michigan, Ann Arbor, Michigan
19 "INTRODUCTION
20 "The St. Lawrence Great Lakes are a
21 part of the 'marine environment1 as defined by
22 the Marine Resources and Engineering Act of 1966.
23 My comments will be restricted to these lakes,
24 emphasizing their role in promoting the national
25 goals in Marine Sciences through the use of these
-------
1 STATEMENT OF FRANK J. KELLEY
2 waters in the conduct of programs in water quality
3 and resource management, research and development,
4 and education and training.
5
6
7 "in order to appreciate the uniqueness
8 of these lakes and their potential contributions
9 to the National Oceanographic program, it is
10 important to recognize their major physical
ll characteristics.
12 "l. These lakes contain the largest
13 single mass of freshwater on the earth's surface,
14 and represent approximately 40 percent of the
15 surface waters of continental United States.
16 Furthermore, their combined areas of 95,170
17 square miles is about the same as that for each
18 of the following seas: Persian Gulf, English
19 Channel, Gulf of California, and the Irish Sea.
20 Because of their size, they are frequently
21 referred to as inland seas, laboratory sized
22 oceans, and the midcontinental coastal area.
23 "2. The maximum lengths of these lakes
24 range from 350 miles (Superior) to 193 miles
25 (Ontario); maximum breadths range from 183 miles
-------
1 STATEMENT OF PRANK J. KELLEY
2 (Huron) to 53 miles (Ontario)5 maximum depths
3 range from 1,333 feet (Superior) to 210 feet
4 (Erie), and the mean depths range from 48?
5 feet (Superior) to 58 feet (Erie),
6 "3. Ratio of drainage area to water
7 surface area = 3:1-
g "4. Total shoreline = 9,600 miles.
9 "5. These lakes possess both lacustrine
10 and oceanic characteristics.
11 "a. Lacustrine
12 (1) Inlet - Outlet - flow through
13 (2) Low salinity - less than 300
14 ppm
15 (3) Predominantly freshwater biota
>
16 (4) Seiche effect greater than
17 tidal
18 (5) Land locked (definite boun-
19 daries)
20 (6) Covered by a single weather
21 system at a given time
22 »b. Oceanic
23 (1) visible effects of Coriolis
24 I force
25 (2) Distribution of upwelling
-------
363
|STATEMENT OP PRANK J. KELLEY
and sinking according to
2
relationship of current stream-
a
lines and the shore
(3) Presence of distinct water
s
masses
6
(4) Modifying effects on weather
7
(5) Thermal cycle with one period
o
of overturn
9
"PRESSING PROBLEMS OF POLLUTION ABATEMENT
10
AND WATER RESOURCE MANAGEMENT
11
"The Great Lakes represent a tremendous
12
natural resource of increasing importance to both
the United States and Canada. Presently these
multi-use waters are being used for 1) navigation,
16 2), hydroelectric power, 3) domestic and indus-
17 trial water supply, 4) irrigation, 5) domestic
lg and industrial waste disposal, 6) recreation,
19 7) food supply and 8) scientific research and
20 the training of marine scientists. Present
21 indications are that multiple use of these waters
22 will be short-lived if they continue to be used
23 as receptors of domestic and industrial wastes
24 produced in the drainage basin. Pollution is,
25 therefore, a pressing problem in these lakes
-------
366
STATEMENT OP FRANK J. KELLEY
2 Jeopardizing all uses and producing a general
3 deterioration of the human environment,
"Attempts at pollution control in the
5 Great Lakes have been piecemeal, each political
- unit trying to solve its problems on a local
basis without consideration of the lakes as a
total system. Lakeshore communities proceed on
9 the assumption that the lakes are an unlimited
10 mass of water with the ability to assimilate
unlimited quantities of waste in any form. Inland
12 communities use rivers entering the Great Lakes to
13 transport their wastes downstream without
14 realizing that the lakes become the eventual
15 receptors. Unfortunately less is known about
16 waste assimilation in lakes than streams, but it
is generally agreed that the residence time for
pollutants in lakes is greater and much of the
19 particulate matter settles to the bottom, causing
20 a filling in of the basin. The residual effects
21 of pollutants incorporated in bottom sediments
22 are not known but generally believed to be sig-
23 nificant. These facts support the belief that
24 the Great Lakes environment is dangerously sus-
25 ceptible to pollution because most avenues of
-------
I STATEMENT OF PRANK J. KELLEY
2 waste disposal in the drainage basin terminate
3 in these lakes.
4 "Physically, the St. Lawrence Great
5 Lakes drainage basin in one system, however,
6 politically it exhibits & pattern of fragmen-
7 tation. This physiographic unit is shared by
8 nine States in the United States and two Provinces
9 in Canada. The heads of these political units
10 can speak only for their unit. There is no
H unified plan or approach for the management,
12 utilization, or the solution of common problems
13 in this drainage basin. Within the United States
14 are seven or more Federal agencies charged with
15 Great Lakes missions: 1) Federal Water Pollution
16 Control Administration, 2) U. S. Bureau of
17 Commercial Fisheries, 3) U. S. Coast Guard,
18 4) U. S. Corps of Engineers and the Lake Survey
19 Office, 5} U. S. Geological Survey, 6) U. S.
20 Weather Bureau and 7) the U. S. Public Health
21 Service. Each agency has carried out its mission
22 in a commendable way, but none is concerned with
23 the lakes as a complete system. Superimposed on
24 this are the efforts by each Great Lakes State
25 to deal with these waters within the framework
-------
_ 268.
1 STATEMENT OP PRANK J. KELLEY
2 of its individual interests. Only the Inter-
3 national Joint Commission attempts to represent
4 the international interests of the United States
5 and Canada, and it, too, has a commendable record
6 of accomplishment within the framework of its
7 objectives, which were defined in 1909. More
8 recently, 1967* the Great Lakes Basin Commission
9 has been established to coordinate the United
10 States activities on the Great Lakes, This is a
11 mechanism which offers promise for bringing about
12 coordinated regional planning and management.
13 Basically, there exists the mechanisms, the
14 technical and scientific knowledge, manpower and
15 economic need for unified programs in pollution
16 abatement, water resources management, and
17 regional planning of the Great Lakes drainage
18 basin. The fact that these programs are non-
19 operative is of deep concern because decisions
20- are made and priorities established in the ab-
21 sence of a unified or regional plan or an under-
22 standing of the Great Lakes as a total system.
23 "ROLE OF GRATLAKES
24 NATIONAL GOALS IN MARINE SCIENCES
25 "Limnologists and oceanographers employ
-------
STATEMENT OF FRANK J. KELLEY
different scales of study in their attempt to
. understand the physical, chemical and biological
s
processes in water bodies and the interactions
_ between these waters and their atmospheric and
5
geological boundaries. In the size series of
water todies from small lakes to oceans, the
Great Lakes represent the mesoscale Aquatic
o
System. These Great Lakes are subject to essen-
tially the same physical, chemical, biological,
meteorological and geological regimes as the
oceans, but in addition, they possess definite
boundaries and each lake generally has a single
14 weather system over it at a given time. Further-
more, the Great Lakes drainage basin is a discrete
16 physiographic unit, within which exist integrated
social, political and economic regimes directly
18 dependent upon these lakes.
19 "By virtue of their size, location and
_o general characteristics the St. Lawrence Great
2i Lakes are uniquely suited for programs in: 1)
22 basic research, 2) model studies, 3) engineering
23 and development, 4-) testing of marine equipment
24 and 5) education and training.
25
-------
37Q
l [ STATEMENT OF FRANK J. KELLEY
2 "Basic Research.
3 "Mesoscale aquatic systems are repre-
4 sented by more than 100 water bodies with surface
5 areas between 5,000 and 30,000 square miles.
6 These are intermediate in size and general
7 characteristics to small lakes and oceans, and
8 some possess both lacustrine and oceanic charac-
9 teristics. Little is known about the environmenta
10 conditions of these mesoscale waters, yet in
u volume they represent 60-70 percent of the
12 surface freshwaters of the world. If these
13 resources are to be effectively and efficiently
14 managed for the maximum benefit to man, their
15 environmental characteristics and processes must
16 be understood sufficiently to predict the
17 planned and unplanned effects of man upon these
jg waters. The St. Lawrence Great Lakes exhibit
19 a wide spectrum of characteristics in respect to
20 morphometry, orientation of long axis to pre-
21 vailing winds, climate, geological formation in
22 drainage basin, land use of drainage basin,
23 urbanization and eutrophication.
24 "In addition to the usual opportunities
25 for research on aquatic processes and phenomena
-------
371
1 STATEMENT OF PRANK J. KELLEY
2 (ecosystem and population dynamics, nutrient
3 cycling, environmental requirements of organisms,
4 exchanges between water and its atmospheric and
5 geologic boundaries, etc.) the Great Lakes afford
6 unusual opportunities in certain areas as illus-
7 trated by the following selected examples:
8 "Physical Nature of Currents. Water
9 currents in the Great Lakes contain both geo-
10 strophic and wind-driven components, as do those
ll of the oceans, but are free of the tidal compo-
12 nents that complicate such studies in the ocean.
13 "Studies of the relationships between
14 the geostrophlc and wind stresses as current-
is producing mechanisms are possible only in the
16 mesoscale offered by the Great Lakes. The
17 relation between the wind and thermal forces go
18 through a seasonal progression from winter through
19 spring, summer, and fall. This 'laboratory ex-
20 periment, where the input parameters are systemat-
21 ically changed, is repeated annually, and provides
22 the necessary information for creating and testing
23 of theoretical models.
24 "Water Masses. The origin, character-
25 istics and fate of water masses can be studied
-------
372*'-
STATEMBKT OF FRANK J. KELLEY
under mesoscale conditions. These masses lend
themselves to studies of lake circulation, and
s
of phyto-zooplankton development and inter-
relationships . The growth, reproduction and
5
seasonal abundance varies for a given plankton
6
species in different water masses.
7
"ice Cover. The formation, structure,
O
extent, breakups and energy relations of the ice
9
cover varies with each lake, because of.differ-
Iv
ences In latitude, lake morphemetry and orien-
tation to prevailing winds. Records of ice
may be obtained from shore stations, plane or
13
satellites. The relation of ice to lake navi-
gation adds an applied aspect to an otherwise
15
,_ theoretical problem.
16
17
"Land Drainage and Water Quality,
to Rivers entering the lakes are relatively small,
lo
,. but their basins are large enough to encompass
19
a variety of land-use practices, and/or community
21 developments. Also, the lakes are large enough
22 to receive this river discharge without the
23 entire lake being affected. Therefore, the
24 impact of each river system on Great Lakes water
25 quality can be determined.
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373
l ISTATEMENT OF PRANK J. KELLEY
"Eutrophication. The nature and rate
z ————____—__—__
of natural and artificial eutrophication can be
3
studied effectively in the Great Lakes since
each lake is distinctive in respect to geo-
5
chemical conditions, degree of urbanization and
6
industrialization in its drainage basin. There
is a wide spectrum of eutrophication conditions,
o
from advanced stages in Lake Erie to a minimum
•f
in Lake Superior. Furthermore, the flow-through
characteristics of the lakes make it possible to
follow downstream effects of each lake on water
iz
13 quality.
14 "Fish Population Studies. Records of
._ commercial fish catches of the Great Lakes are
i&
16 continuous and complete since 1867. These
17 records make possible unusual studies in popu-
18 lation dynamics and in.population and species
19 response to environmental changes, invasion of
20 marine species and fishing pressure.
21 Invasion _of Marine Spec lea.. Marine
22 species are entering the Great Lakes and some
23 have become firmly established 1,000 miles from
24 the sea. Examples Include the sea lamprey,
25 Petromyzon marinus; alewife, Alosa psuedo-harengus
-------
374
! STATEMENT OF FRANK J. KELLEY
2 smelt, Osmerus mordax; a polycheate, Manayunkia
3 erienensis; and a copepod, Eurytemora affinis.
4 Studies of such species will contribute perti-
5 nent information on rates and mechanisms of
6 adaptation of marine organisms to fresh water,
7 "Model Studies^
8 The Great Lakes represent a mesoscale
9 aquatic system well suited for model studies of
10 processes and problems of regional and global
ll importance. Two selected examples will serve to
12 illustrate this concept.
13 "Regional Env4^rMunentaJL_gtudjag_. The
14 St. Lawrence-Great Lakes region provides the
15 essential ingredients for a model study relating
16 *° the enchancement of the human environment.
17 It is a physiographic unit dominated by the
18 largest single mass of freshwater on the earth's
19 surface and is in the path of the most rapid
20 industrial and urban development in the United
21 States and Canada. This situation offers an
22 interesting study of the interrelationships and
23 interactions of the social, political and eco-
24 nomic aspects of the region along with a study
25 of the scientific management and utilization
-------
_ 375
1 STATEMENT OP FRANK J. KELLEY
2 of its tremendous freshwater resource.
3 "These lakes also lend themselves
A uniquely as a model for studies in international
6 resource management, since they represent a hugh
c natural resource of great economic importance
o
7 to both the United States and Canada. Probably
8 no two other countries share a resource of this
9 magnitude, that possess so much technical knowl-
10 edge and have as a long record of friendly
11 cooperation.
12 "This concept is presently being pur-
I3 sued by a Conference Group composed of repre-
14 sentatives of the Committee on Institutional
15 Cooperation (Big Ten Universities and Chicago)
16 with the aim of determining the feasibility of
17 a systems model of the Great Lakes Region. The
18 first step in their efforts have been toward
19 constructing water quality and water quantity
20 models .
21
22 Lake Michigan, for example, subserves a unique
23 laboratory function in the study of weather
24 modifications by water. Situated transverse to
25 movement of air masses and weather from west
-------
376
1 STATEMENT OF PRANK J. KELLEY
2 to east, this lake is large enough to produce
3 clean-cut modifying effects upon weather
4 crossing it, yet is not so large that separate
5 weather systems are likely to exist over it at
6 the same time. Its landlocked nature allows
1 Lake Michigan to be surrounded by weather stations
8 a condition that allows the observations of air-
9 mass parameters before and after modification by
10 the underlying water body, a situation which
H cannot be satisfactorily achieved for oceans.
12 "Furthermore, studies of wind-to-wave
13 relations may be made under simplified conditions,
14 because of the absence of wave-trains or swells
15 from other distant weather systems. Open-water
16 fetches of 50 to 300 miles are common on the
17 Great Lakes and these distances can be measured
18 accurately.
19 "Engineering and Development.
20 "Surface Vessels. The conduct of re-
21 search on the Great Lakes requires equipment,
22 instruments and procedures very similar to those
23 needed for oceanographic studies. Nevertheless
24 essential differences do exist between these two
25 environments in regard to, e.g., distances, sea
-------
377
STATEMENT OF PRANK J. KELLEY
state, and number of accessible ports. Most
2
oceanographic cruises are from a few weeks to
3
several months in length, while on the Great
. Lakes cruises are from one to several days.
5
In these differences lie opportunities for
6
exploring new concepts of the construction and
8
operation of research vessels. Conceivably,
a multiple purpose vessel could be constructed
9
for research, support for submersibles and diving
equipment and for student training. Also, the
,. Great Lakes afford a good place for testing the
iz
applicability of hydrofoils and various kinds of
14 aircraft for a rapid coverage of lake surface
15 conditions .
"Submarines and Man-in-the-Sea Project.
----- -- —
17 Water of 600 feet or greater depth is accessible
18 in several parts of the Great Lakes within a
distance of 30 miles or less from shore. Numerous
20 deep-water ports exist on all the lakes, and
21 within the immediate region are work and research
22 ships, diversified Industry, supply and engineering
23 companies and the intellectual and technical
24 resources of numerous universities. In no other
25 place in the world does this combination of
-------
318,
STATEMENT OF FRANK J. KELLEY
conditions and facilities exist within so small
an area. These conditions are highly favorable
O
for the development and testing of research sub-
4
marines and various aspects of the !Man-in-the-
5
Sea1 project. The economy of time and money is
6
evident.
"S][nopti.c_Su.rve:fs_jand Ins trumentation
r>f nn-mvneiW
8
of Commercial Vessels. It is feasible to make
a single-day multiple-ship survey of an entire
lake, since ports are numerous, the maximum
width is less than 185 miles and numerous small
surface vessels are available for charter.
13
4 Synoptic areal coverage of a single lake can
15 be achieved in 12 hours, and surface ship
16 support is readily available for calibration
points.
lg "Furthermore, application of the con-
19 cept of 'Ships of Opportunity' or 'Neptune
20 Projects' to commercial vessels in the Great
Lakes has some promising possibilities. One
22 hundred or more vessels such as freighters,
23 ferries and fishing vessels may be on the lakes
24 on any given day during the navigation season.
25 Most of them operate on a scheduled course.
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379
ISTATEMENT OF FRANK J. KELLEY
With proper instrumentation, a synoptic coverage
2
of any one lake, or possibly of all the lakes,
3
could be made on a daily basis. In addition
_ to giving lake-wide coverage (an impossibility
5
with research vessels for economic reasons) this
6 '
would be a means of collecting valuable routine
survey data, while freeing research vessels for
8
specialized duties. Existing technology makes
tJ
possible the collection of various kinds of
physical, chemical and biological data from
ships under way at speeds up to 18 knots.
12
,, "Testing of Marine Equipment. The
13
14 freshwater environment in the Great Lakes pro-
.- vides depths equivalent to those of the
16 Continental Slope, at distances less than 30
J7 miles from commercial ports with ship-support
18 facilities, in water relatively free of cor-
19 rosion and biological fouling. Because of
20 these conditions the development and testing
21 of marine equipment such as: 1) automatic buoy
22 systems, 2) fixed platforms, 3) diving equip-
23 ment, 4) research submarines, 5) acoustic and
24 electromagnetic probes, 6) chemical probes, etc.
25 can be carried on easily and economically.
-------
, 380
1 STATEMENT OF PRAHK J. KSLLEY
2 "Education and Training.
3 "in the fields of limnology and ocean*-
4 ography, the basic problems, methods and proee-
5 dures, and much of the equipment are identical,
6 and in many instances a person trained in one
7 becomes professionally employed in the other.
8 Since the Great Lakes are intermediate in the
9 total size-series of the world's water bodies,
10 and possess both lacustrine and oceanic char-
11 acteristics, they are uniquely suited for the
12 education and training of aquatic scientists.
13 The overlap of several disciplines in Great
14 Lakes studies provides a natural common ground
15 and needed meeting place for limnology and
16 oceanography that can and should be utilized
17 to the benefit of both.
18 "Within the Great Lakes region are at
W least 20 universities with established programs
20 in the aquatic sciences involving curricula,
21 scientific personnel, and a great diversity
22 of teaching and research facilities. Research
23 vessels suitable for training purposes are
24 operated by universities in the region. In
25 addition to giving students shipboard experience
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1 STATEMENT OP PRANK J. KELLEY
2 with oceanographlc equipment and procedures,
3 this arrangement has the unique feature of
4 dealing with a complete aquatic system in an
5 interdisciplinary manner. Such an approach
6 is not possible on either small lakes or oceans.
"MONITORING OF GREAT LAKESWATERS
8
9 "Monitoring of the waters of the Great
10 Lakes is important relative to 1) identifying
11 sources and kinds of pollution and 2) identifying
12 long-range changes in the quality of water both
13 from natural and manmade processes* At present
14 there is not a satisfactory monitoring system
15 to achieve either of these goals.
16 "Monitoring must be considered in a
17 conceptual model and also relative to techno-
18 logical methods of monitoring. A conceptual
19 model must be system oriented with respect to
20 variables measured in time and space. The
21 results of the conceptual model dictate the
22 development of -proper technology and the proper
23 use of resultant monitoring instruments relative
24 to time and position.
25 "Monitoring Model.
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I STATEMENT OF FRANK J. KELLEY
2 HWe propose a dual program to develop
3 an effective monitoring system for the Great
4 Lakes. The first program would be a total
5 evaluation of water quality data for the Great
6 Lakes (and especially for Lake Michigan). This
7 analysis would involve 1) identification of
8 factors of water quality, 2) identification of
9 gradients of water quality factors, 3) identi-
10 fication of time trends, and 4) prediction of
H optimum sampling locations and times. Water
12 quality factors will be isolated using factor
13 analysis techniques on existing station data.
14 Results of this study will show the degree of
15 dependence (or independence) of commonly
16 measured variables upon variables commonly
17 accepted as indicative of water quality (BOD,
18 DO, color, etc.). The total results would
19 also allow prediction of better criteria for
20 water quality by showing relationships to
21 indicators used presently. In this way, the
22 minimum number (and kind) of variables required
23 to define water quality will be determined.
24 "Due to population and industrial
25 density as well as environmental and natural
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STATEMENT OP FRANK J. KELLEY
2 processes (currents, nature of the bottom
3 sediment, etc.), a measured quantity will vary
4 at a different rate in different regions of the
5 lake. The amount of change horizontally and
6 vertically and predictability of change (lack
7 of noise) will define optimum sampling spacing.
8 Trend surface analysis is a statistical tool
9 which allows the determination of optimum
10 spacing by fitting of up to a third order poly-
11 nomial three dimensional curve and also allows
12 the plotting of difference maps. Difference
13 maps represent the difference between actual
14 results and that of the function. Low gradient
15 maps require only a few sampling stations whereas
maps with high gradients and large difference
demand closer sampling intervals. Areas of
18 high 'noise1 (large differences) suggest 'unknown'
19 (unmeasured) variables or factors.
20 "Spectrum analysis allows the deter-
21
raination of cycles (seasonal, etc.) in data.
oo
Chicago, Milwaukee, and Cleveland water stations
have data that can be examined as a function of
24 time. Analysis of these data could not only
25 determine the period(s) of cycles but also point
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! STATEMENT OF PRANK J. KELLEY
2 out seasonal periods of high noise when sampling
3 should be emphasized.
4 "Prediction of optimum sampling times
5 and locations depend upon results of the three
, above studies as well as testing of predictions.
o
7 This would allow the optimizing of monitoring
8 stations and in many cases allow advance indi-
9 cation of deterioration of water. In this line,
10 it has not been recognized that many conditions
n of deterioration of water inshore can be identifle|i
12 offshore before the condition develops. There-
13 fore maximum returns from data analyzed in a
14 manner outlined above is required to efficiently
15 monitor a lake.
16 "The procedural aspects of this study
17 are 1) obtain GLIRB, UM and water intake data,
xg etc., 2) develop computer programs, 3) define
19 conclusions from the statistical analysis, 4)
20 using random times and locations, test the pre-
21 dictability of the model by sampling, 5) r«-
22 define monitoring conclusions from the tests,
23 6) define technological monitoring network
24 required.
25 "Technical Monitoring Devices.
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1 STATEMENT OF PRANK J. KELLEY
2 "The output of the above study will
3 be input in the sense of the monitoring devices
4 required for Great Lakes study. At present,
5 commercial devices (Beckman, Fairchild, Honeywell)
3 monitor conductivity (TDS), pH, DO, temperature,
7 residual, chlorine, and some other specific ions
g such as F, Br, Ca, and Mg. Besides definitions
9 of variables that should be monitored (output
10 from above study), we recognize the following
11 as desirable: nitrogen, phosphorus, total crop,
12 dissolved organic compounds, and light trans-
13 mission (turbidity, etc.). All of these variables
14 require basic research and applied research
15 particularly with respect to the sensing elements.
16 Solid state electrodes may be feasible for
17 phosphorus and nitrogen, a filter-opacity and/or
18 reflectance device for crop, and a UV spectrum
19 analyzer for dissolved organic substances. All
20 should be connected to a data analyzer (computer)
21 and be usable from shore, ship, and remote
22 installations. Besides this developmental work,
23 there is reliability testing that needs to be
24 done on existing probes. For example, the
25 membrane oxygen electrode fouls in high particle
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STATEMENT OF FRANK J. KELLEY
2 and high H2S water. It does not respond well
3 under high pressure (great depth). There is
a high probability that a doped crystal similar
to the Orion fluoride electrode is usable for
oxygen measurements.
"No one has yet married a computer to
sensing devices although this seems desirable
relative to display of data on a network (lake
10 wide) basis and to display analysis rapidly for
11 remedial purposes.
12 "Procedures: 1) obtain one available commercial
13 unit for reliability testing and modification;
14 2) basic research into the use of solid state
15 electrodes for sensing elements for nutrients
16 and oxygen; 3) electronic development for other
17 sensors amplification and analysis of signal;
lg 4) feasibility of small scale computer use in
19 larger network system; 5) testing of components;
20 6) write specifications for network system
21 "Personnel involved: J. R. Kramer, H. K. Soo,
22 Floyd Elder, Vincent Noble, Eugene Stoermer,
23 John Ayers, Edward Callender.
24 "Estimated cost: $150,000 per year over five
25 years, or $300,000 per year over three years
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1 STATEMENT OP FRANK J. KELLEY
2 "Nutrient Chemistry Study*
3 "The criteria used for defining water
4 quality (and hence sources of pollution) are not
6 well defined except in extreme cases. Factors
6 that appear to be important are excess nutrients
7 (particularly phosphorus), high oxygen demand
8 liquids and solids, turbidity, soluble organic
9 compounds, and temperature. But neither the
10 quantitative level or long term changes relative
11 to 'assimilative* powers of the lakes are known.
12 These must be ascertained in order to define
13 water quality criteria for an efficient manage-
14 ment program.
15 "We conceive of inducing levels of
16 pollution in situ in plastic bags and monitoring
17 the change in the water with emphasis on biology.
18 Besides changing the composition of the water
19 by adding at high concentrations nutrients and
20 other chemicals, we shall run studies on systems
21 with and without bottom sediment (and different
22 kinds of bottom sediment), open or closed to
23 the atmosphere, with onshore and offshore water
24 and biota, and as a function of temperature and
25 turbidity. The definition of kinds of input
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j ISTATEMENT OF FRANK J. KELLEY
2 would come from cases of presently known pol-
3 lution as well as from trends already observable
4 in the lakes. In addition, other presumed future
, sources of pollution would be considered. In
this way, one can ascertain specific changes in
7 all kinds of waters if certain conditions are
8 allowed to continue. Once a severe condition
g of pollution is developed in the 'bag,1 various
10 techniques would be used to attempt to return
n the water to high quality. This procedure is
12 different from similar laboratory studies in
13 that natural fluctuations relative to temperature,
14 sunlight, turbidity, and particulate matter
15 would be incorporated.in the system. All
16 laboratory studies have not included one or
17 more of these conditions.
18 "Personnel: J. R. Kramer, Edward Callender,
!9 Eugene Stoermer, Floyd Elder.
20 "Estimated cost: $80,000 per year for three
21 years.
22
23
24
25
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1 STATEMENT OF FRANK J. KELLEY
2 MICHIGAN STATE UNIVERSITY, East Lansing
OFFICE OF VICE PRESIDENT FOR RESEARCH DEVELOPMENT
3 SCHOOL FOR ADVANCED GRADUATE STUDIES
OFFICE OF THE DEAN
24 January 1968
5
Mr. Frank J. Kelley
6 Attorney General
State of Michigan
7 Lansing, Michigan 48933
8 Dear Mr. Kelley:
9 This replies to your letter to President
10 John A. Hannah, 24 November 1967, concerning re-
11 search on the problem of pollution of Lake Michigan
12 May I take this opportunity to indicate in a broad
13 manner the state of research and to suggest that
14 contact on specific questions and matters be
15 directed to Dr. R. C. Ball, Director of our Insti-
l<> tute of Water Research.
17 The research by the universities on Lake
18 Michigan has been carried out with two rather dis-
19 tinct approaches. The University of Michigan, with
20 its large ship facilities, has carried out certain
21 studies on the physical parameters of the lake.
22 Data on these investigations have been published
23 by the Great Lakes Institute and copies of these
24 reports and any data collected since the most
25 recent report can be obtained by contacting Dr.
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1 STATEMENT OP PRANK J. KELLEY
2 David Chandler, Director of the Great Lakes
3 Institute of the University of Michigan.
4 The Michigan State University scientists
5 have followed the premise that undesirable condi-
6 tions now being found in Lake Michigan are to a
7 large extent a product of the pollution and
8 nutrients brought to the lake by the stream
9 systems. It is in this area of pollution ecology
lO that we have concentrated our efforts.
11 The results of the research projects
12 in water resources at Michigan State University
13 are available in theses forms and as published
14 information and cover an extremely wide range of
15 subject matter. These have been made available
13 to the Michigan Department of Conservation and its
11 Water Resources Commission for possible incorpora-
lg tion into their management and surveillance pro-
19 grams. Examples of the research are found in
20 studies of the methods of removing nutrients
21 from sewage plant effluent discharges to prevent
22 the entrance of these nutrients into streams and
23 thus eventually into the Great Lakes, where they
24 contribute greatly to the processes of eutrophi*
25 cation. Studies are underway concerning the kinds
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I STATEMENT OF FRANK J. KELLEY
2 and types of pesticides which move from our farm
3 lands, our urban developments, and our sewage dis-
4 posal plants to eventually find their way into
5 Lake Michigan. Here they may move through the
$ food chain of the salmon, where they may affect
7 the reproductive potential of the adult fish.
g Cooperative projects are now actively
9 underway to quantify the amount and nature of
10 materials that constitute the major pollutants
11 which enter Lake Michigan from the State of Michi-
12 gan. Presently this information is now available
13 in the detail necessary for proper evaluation of
14 the problems involved. We are undertaking this
15 evaluation in considerable detail on the major con-
16 tributing watershed, the Grand River. Following
17 the physical, chemical, and biological treatment
18 of the samples, the resulting data, along with
19 cognate data concerning source, etc., will be fed
20 to a computer-based storage and retrieval system.
21 It will thus become readily available for answers
22 to requests such as yours.
23 A large-scale demonstration project is
24 in an advanced stage of planning on our campus.
25 This will put into operation the salient facets
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1 STATEMENT OP PRANK J. KELLEY
2 of our past research findings to evaluate methods
3 of removing the entire nutrient-rich effluent of
4 a disposal plant from the receiving stream. This
5 or comparable types of waste handling may become
6 essential to all communities of the State to pre-
7 vent our wastes from reaching and adversely
8 affecting the Great Lakes.
9 It would be extremely difficult, if not
10 impossible, to detail each of the research projects
11 which have been undertaken on the Michigan State
12 University campus over the past years as they
13 relate to water quality and thus directly or
14 indirectly to Lake Michigan. The material on all
15 such research projects is being gathered together
16 in one area under the sponsorship of the Institute
17 of Water Research. As Indicated above, Dr. Robert
18 C. Ball, a member of our staff and Director of the
19 Institute, would be very happy to supply you with
20 any specific information concerning the water
21 quality and water resources problems of Lake
22 Michigan at any time that you might wish.
23 We will be pleased to offer our services
24 and cooperation in your efforts to abate the pollu-
25 tion in Lake Michigan. (Signed) Milton E. Muelder
- - . Vice President and Dean
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! STATEMENT OF PRANK J. KELLEY
2
Letter to Governor George Romney
3
From Attorney General Kelley
January 16, 1968
5
6 "Dear Governor Romney:
7 "During the summer of 1967 a huge
g die-off of alewives caused the beaches of Lake
9 Michigan to be littered with dead fish, posing
10 a menace to health, clogging water intakes, and
H causing a loss of tourist trade in the four
12 Lake Michigan States estimated at over $100
13 million. Our State suffered the most. The
14 Impact was devastating. The estimated loss of
15 tourist trade in Michigan alone was $55 million
16 during 1967.
17 "indications are that in 1968 we will
18 experience a die-off equal to, or greater than,
19 that of 19^7. It is estimated that work to pre
20 vent the alewife from being deposited on the
21 beaches, from fouling the beaches and water in-
22 takes, and physically removing the carcasses,
23 once deposited, will cost approximately $1.5
24 million for 1968.
25 "The Department of Conservation of
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l STATEMENT OF PRANK J. KELLEY
2 Michigan has made detailed studies on cleanup
3 methods and costs, and has a program prepared
4 which has a price tag of over $800,000. The
5 Secretary of Interior has appointed a Task Force
fi to make recommendations to meet the alewife
? die-off problem. But in the immediate future
g we face a health and sanitation menace during
9 the summer of 19^8, as well as a continued impact
10 on our tourist trade.
n "As Chairman of the Michigan Delegation
12 to the Great Lakes Commission, I wish at this time
13 to advise you of that Commission's proposals.
14 The Great Lakes Commission recommends that
15 immediate measures be taken to establish an
16 emergency $3 million Federal-State cooperative
17 alewife cleanup and removal program for Lake
18 Michigan for the years 1968 and 1969. Under
19 this program there would be a minimum 50 percent
20 Federal matching funds which would be funded
21 from funds presently available to the Secretary
22 of the Interior or the Office of Emergency
23 Planning; provisions for reimbursement to States
24 would be provided in the event the Federal share
25 was not forthcoming on a timely basis. Action
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1 STATEMENT OP FRANK J. KELLEY
2 by the States should Include authorization to
3 use general or appropriated funds for the program
4 and appropriation of the necessary amounts.
5 "We believe action on the proposed
6 program is urgent. Health, sanitation and
7 economic requirements dictate immediate action.
g We welcome your views and cooperation in this
9 important endeavor.
10 "Sincerely yours,
11 "PRANK J. KELLEY
12 "Attorney General and
13 "Chairman, Michigan Delegation
14 "to Great Lakes Commission"
15
Whitehall Forum
16
White Laker
17
January 4, 1968
18
w "STATE MAPS PLAN TQ CLEAN BEACHES IN '68;
20 $827,000 PROGRAM AIMED AT ALEWIFE DIE-OFF
21 "Michigan's Department of Conservation
22 has mapped battle plans for combating Lake
23 Michigan's anticipated alewife die-off in 1968
24 to avoid a repeat of this, year's costly and
25 unsightly calamity.
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396
l STATEMENT OP FRANK J. KELLEY
2 "in a report sent to Governor Romney
s at his request, the Department is proposing an
4 $827,000 cleanup program covering 508 miles of
I Lake Michigan shoreline and pegged at meeting
II
6 the alewife problem principally during the peak
7 die-off period from June 15 to raid-August.
8 "Projected cost of the program is
9 dwarfed by the estimated figure of $55 million
10 in tourist business which was lort on the west
11 aide of the State last summer when the stench
12 and sight of hundreds of millions of dead ale-
13 wives drove vacationers away from the lake's
14 resorts and parks.
15 "Basically, the Department action-
16 ready plan is a two-pronged attack on the alewife
17 problem.
18 "First and foremost, it is aimed at
19 removing as many dead fish as possible before
20 they have a chance to reach the lake's beaches.
21 The Department recommends that this be done by
22 paying commercial fishermen some $220,000 to
23 skim dead alewives from the surface of the lake
24 with trawling gear and purse seines.
25 "The nuisance fish would be hauled
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1 STATEMENT OF FRANK J. KELLEY
2 ashore and those suitable for fish meal would be
3 routed to processing plants. The bulk, however,
4 would be buried in specially designated sanitary
5 fills.
6 "Although it is estimated that com-
7 mercial fishermen could net about 8,000,000
g pounds of alewife for removal, large numbers of
9 the problem fish will still windrow upon beaches
10 where they will have to be picked up, hauled
11 and buried.
12 "For this second stage of the operation,
13 Department officials hope to field 20 custom-
14 made mechanized beach cleaners which with adequate
15 manpower would cost about $607>000.
16 "During the past summer, the Depart-
17 ment parks division experimented with several
18 types of these machines and results of this
19 field testing give good promise of doing the Job.
20 As a bonus, even though the machines would be
21 bought to handle the alewife die-off, they
22 would serve double duty in picking up broken
23 glass, trash, and debris under regular beach-
24 cleaning operations.
25 "Department officials say it would be
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flSTATEMENT OP FRANK J. KELLEY
physically Impossible for manpower alone to meet
the tremendous, far-reaching chore of cleaning up
3
dead alewives along Lake Michigan1; shores. Also,
this limited approach would cost an estimated
5
6 $2.5 million in 1968.
"Of immediate concern to the Department
7
is the matter of getting funds to translate its
O
paper plan into an action program. Recognizing
that the alewife problem affects Great Lakes
States and is considered a regional headache,
Department leaders are recommending that the
Federal Government appropriate necessary funds
13
,. to underwrite cleanup and research work.
14
"•The Conservation Department views
15
,fi itself as the mobilizing force in Michigan since
10
17 it has specialists in the field to work on the
18 alewife problem and can draw readily on resource
19 people to fuse an action group and put its
20 program into operation.
21 "it is banking heavily on having
22 County highway departments that border Lake
23 Michigan serve as cleanup agencies because they
24 i have the 'necessary know-how and organization
25 to put the efforts into effect.1 Within towns
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399
1 STATEMENT OF PRANK J. KELLEY
2 where Intensive beach use takes place, cleanup
3 could be handled by those cities. If Federal
4 monies are made available, they will be parceled
5 out to the cities according to their beach-
6 cleaning responsibilities.
7 "With time of the essence, the Depart-
g ment is working with the U. S. Bureau of Commercial
9 Fisheries and commercial fishermen on surveys
10 which hopefully will give some fair warning
n on how large next summer's alewife die-off should
12 be in Lake Michigan*
13 "Department leaders stress that their
14 present plan is strictly a short-term measure to
15 do the Job that needs to be done. Over the long
16 haul, they hope to whip the problem by building
17 up stocks of salmon and trout to restore a
18 favorable balance between predator and prey
19 fish populations in the Great Lakes*"
20 - - -
21 MR. STEIN: We will take a recess for
22 10 minutes.
23 (Recess.)
24
25
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400
MURRAY STEIN
MR. STEIN: May we reconvene.
Let me make certain procedural points
clear again. One, we do not anticipate going
much after 5 o'clock. And again, as I pointed
out, the stenographer can Just take so much of
a record, and I think a human being can absorb
Just so much of this, I say that on the basis
of long and sometimes sorry past experience
10 when we have tried to push. We will reconvene
n at 9:30 in the morning. We will not go much
12 beyond 5 o'clock.
13 For the rest of the schedule, we will
14 hope to have a better estimate when you people
15 have come up and talked to your State agencies
16 about how long each State presentation will be,
17 with their guests, and try to give you an
18 estimate of when you might appear or be called
19 upon. I suspect that the Federal presentation
20 will take most of tomorrow as well as the rest
21 of today. However, sometime tomorrow morning I
22 would hope to have a further announcement as to
23 when other people might be expected to give
24 their statements.
25 We will now proceed to the Federal
presentation, Mr, Poston.
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401
l
FEDERAL PRESENTATION
2
3 MR. POSTON: We would like to start
4 off our presentations with Federal agencies.
5 The first agency will be represented by Mr.
6 Walter Kiechel, Jr., Assistant Chief of the
7 General Litigation Section in Charge of the
8 Water Resources Unit of the Department of
9 Justice.
10 Mr. Kiech-21 is familiar to many of
xl you because of his association with the Great
12 Lakes conversion case for many years.
13 MR. HOLMER: Mr. Poston, before Mr.
14 Kiechel begins, I would like to ask on behalf
15 of a number of people who have asked me, much
16 as we want to hear Mr. Kiechel, and I know
17 his presentation will be very interesting, but
18 there is some curiosity about the projected
19 sequence for the remainder of this afternoon.
20 Have you reached that decision yet?
21 MR. POSTON: I had intended to ask
22 secondly Mr. Clevenger, Chairman of the Great
23 Lakes Basin Commission, and thirdly Mr.
24 Stoddard, Regional Coordinator of the Department
25 of the Interior.
MR. HOLMERt Thank you very much.
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4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
402
WALTER KIECHEL, JR.
STATEMENT BY WALTER KIECHEL, JR.
ASST. CHIEF OF THE GENERAL LITIGATION SECTION
IN CHARGE OF THE WATER RESOURCES UNIT
LAND AND NATURAL RESOURCES DIVISION
DEPARTMENT OF JUSTICE
MR. KIECHEL: I assure you, Mr. Holraer,
that I will be brief.
Mr. Chairman, distinguished conferees,
ladies and gentlemen. I am Walter Kiechel. I
am representing Clyde 0. Martz, Assistant
Attorney General of the Land and Natural Re-
sources Division of the Department of Justice.
The Department of Justice is pleased
to accept the invitation of the Chairman to
attend and participate in this conference. In
addition to the functions of the Attorney
General under the Federal Water Pollution
Control Act generally, we have a special and
continuing concern with respect to the water
quality of Lake Michigan.
That concern was demonstrated by the
intervention and participation of the United
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403
1 WALTER KIECHEL, JR.
2 States in the Interstate litigation concluded
3 in June 196? by decree of the Supreme Court of
4 the United States. I refer to the so-called
5 Lake Diversion litigation, Cases 1, 2, 3 and 11
g Original in the Supreme Court in which the States
7 of Wisconsin, Minnesota, Ohio, Pennsylvania,
S Michigan, New York, and Illinois, as well as
9 the Metropolitan Sanitary District of Greater
10 Chicago, and the United States are parties.
H That litigation has a direct bearing
12 on this conference, not only because of the
13 relevance of its many Findings of Pact, confirmed
14 by the Supreme Court, and the scientific evidence
15 supporting such Findings, but because it points
16 the way for our future and I hope our present
17 endeavors.
18 To pollute Lake Michigan deliberately
19 is, in this enlightened time, unthinkable. But
20 it was not always thus. In fact, less than 10
21 years ago, the complainant States in that liti-
22 gation sought and obtained the reopening of the
23 1930 Supreme Court decree on the representation
24 that the Court should require the return of
25 treated sewage effluent to Lake Michigan.
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1 WALTER KIECHEL, JR.
2 Prominent in the reasons for interven-
3 tion by the United States in this reopened liti-
4 gation was the protection of Lake Michigan and
5 the other Great Lakes as one of the great natural
6 resources of the Nation. By initiating a compre-
7 hensive Federal pollution study of the Great Lakes[
g results from which were introduced into evidence
9 and formed the basis of Findings of Fact, the
10 proposal for discharge into Lake Michigan of
11 sewage effluent was illuminated and rejected.
12 And so, the direction today is toward
13 keeping pollution out of Lake Michigan, not
14 putting it in. We meet here to pursue the common
15 goal of reducing to the maximum extent possible
16 the introduction of pollutants into Lake Michigan
17 presently taking place. We of the Department of
18 Justice want to assist in that endeavor.
19 The Federal Water Pollution Control Act
20 provides several tools for water pollution abater
21 ment, including the calling of conferences such
22 as this conference that we are having today and
23 the convening of hearings. The Act also provides
24 j another tool — litigation. We do not mean to
2& exalt the remedy provided the Secretary, should
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1 WALTER KlECHEL, JR.
2 the other tools be to no avail, of requesting the
3 Attorney General to bring a suit on behalf of the
4 United States to secure abatement of the pollution
5 of Lake Michigan. We hope litigation will not be
6 necessary. But we do mean to make it clear that
7 we will not shirk our responsibilities to wield
8 the tool of enforcement litigation should it be
9 necessary. Clearly, the best solution lies in
10 cooperative and vigorous action under your
ll leadership to develop a voluntary program which
12 will conserve this precious resource,
13 Thank you.
14 MR. STEIN: Thank you, Mr. Kiechel.
15 (Applause.)
16 MR. STEIN: Walter, as the first
17 Federal participant, you have opened the hunting
18 season. Prom now on we have a different rule.
19 If there are any comments or questions on the
20 part of the conferees, the rest of the people
21 making statements will be subjected to this nice
22 courtesy we always provide everyone making a
O«J
statement.
24 Do you have any?
25 MR. HOLMER: Yes. When the statement
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1 WALTER KIECHEL, JR.
2 of Secretary tJdall was read, there was reference
3 to the making of recommendations and I am not
4 quite sure whether this is the appropriate time
5 at which to raise this question, and if you
6 prefer that I defer it, that will be fine.
7 But I would like to ask at this time
8 whether it is within the realm of the conference
9 to make recommendations with respect to the
10 adoption of legislation. I noted that the'
H PWPCA report, which we will be hearing about
12 later, suggested the adoption of a particular
13 piece of legislation governing boat operations.
14 These would not be subject, as I would understand
15 it, to the Judicial enforcement proceedings that
16 are provided under the Water Resources Act, the
17 Water Quality Act.
18 MR. STEINt I don't know that they are
19 calling for Federal legislation. I am not sure
20 that we have a pattern that Is going to satisfy
21 everyone, but here is the situation.
22 As far as Federal people are concerned,
23 we can make no recommendations as to Federal
24 legislation. That is done by a special process,
25 as many of you who are representatives from the
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1 WALTER KIECHEL, JR.
2 Federal agencies here know and who are a lot
3 more familiar with the process. Legislation
4 can be proposed in each department by its
5 Secretary, The proposals are then reviewed
g centrally by the Bureau of the Budget in the
7 Office of the President, at which time we
g and other departments and agencies are given
9 the opportunity to comment. This is not
10 the appropriate place for us to make comments
11 on Federal legislation.
12 The other Conferees can make any
13 statement they wish now as far as State legis-
14 lation is concerned. We have been directed in
15 the Federal Act to recommend and take action
16 toward improved and as far as possible uniform
17 State antipollution control legislation. We
18 have had a considerable amount of activity in
19 this area. As a matter of fact, I think of
20 the laws put out in this field this is probably
21 one of the most successful, it is a best seller
22 anyway, because we have worked with Mr, Poole,
23 Mr. Oeming, Mr. Klassen through the years and
24 others on the committee have developed principals,
25 have suggested legislation and have certain
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408
WALTER KIECHEL, JR.
recommendations to make. Within those guidelines
3 we do make recommendations generally to States
4 on legislation and when the State requests it
5 we will specifically comment on a particular bill.
6 And that is about where we stand on
7 the legislative picture.
MR. HOLMER: Thank you.
9 MR. STEIN: Thank you.
10 Any further comment or question?
11 If not, Mr. Post on.
12 MR. POSTON: I next call on Mr. Raymond
13 F. Clevenger, Chairman of the Great Lakes Basin
14 Commission. Mr. Clevenger hails from the head-
15 quarters in Ann Arbor.
16
17
18
19
20
21
22
23
24
25
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409
1 RAYMOND P. CLEVENGER
2
3 STATEMENT BY RAYMOND F. CLEVENGER
4 CHAIRMAN, GREAT LAKES BASIN COMMISSION
5 ANN ARBOR, MICHIGAN
6
7 MR. CLEVENGER: Mr. Chairman and
8 gentlemen. First let me thank you for inviting
9 me here to make a statement. I will try and
10 be brief,
11 Let me also say that the Great Lakes
12 Basin Commission is not a Federal agency. But
13 we appreciate your hospitality.
14 While I am Chairman of the Great Lakes
15 Basin Commission, I will not try either to speak
16 for our other Commission members. Each of the
17 States in the entire Great Lakes Basin, as well
18 as every Federal Department having a role in
19 the water and related land resources of the
20 basin, have representatives on the Commission.
21 Let me speak, though, not only as a
22 concerned public official and citizen, but as one
23 whose family helped settle this basin. One
24 great-grandfather, John Clevenger, was an Indian
25 fighter; another great-granduncle left from here,
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410
RAYMOND F. CLEVENGER
2 I find, to serve In the Civil War; and like most
3 of us, another two of my family branches came as
later immigrants from Ireland and Prance.
I was born and raised in Chicago, went
to law school in Michigan, and went with my
family to make my home in Sault Ste. Marie, in
Michigan's Upper Peninsula. 'Besides being a
9 I country lawyer, I've served as the head of a
10 State agency, the Michigan Corporation and
Securities Commission, and have had the privilege
°f representing the northernmost district of
13 Michigan in the 89th Congress.
14 When President Johnson responded to
15 the request of the eight Great Lakes States
Governors and established the Great Lakes Basin
17 Commission last April, he also appointed me its
18 Chairman. Since that time, I've been getting an
19 extensive review of the problems of the Great
20 Lakes, with many of you here as my teachers.
2i So I appear here not as a detached expert, but
22 as one who is going to have to put my money where
23 my mouth is .
24 We're here in conference because Lake
25 Michigan is really the victim of our success,
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1 BAYMOND P. CLEVENGER
2 not our failure. Our population and industrial
3 growth have exploded. Increased leisure time
4 and people intent on using some of their time
5 enjoying the lake have put undreamt recreational
6 demands on Lake Michigan.
7 Many of you with direct and official
8 concern with water quality conditions have been
9 alert to the problems caused by this success.
lO And because of such concern, our legislatures
11 have worked overtime to change our laws to
12 meet these new conditions and problems. You
13 know that these laws have been required by
14 problems growing each year in geometric pro-
15 portions. This conference can help us decide
16 how we can best use these laws not only to keep
17 our water problems from getting worse, but to
18 make some headway in solving them.
19 As I see Lake Michigan, and the entire
20 Great Lakes Basin for that matter, our activities
21 concerning the lake have been fragmented. But
22 this is because the problems and our response to
23 them were fragmented. Lake Michigan and the
24 other lakes were a vast sea. As pockets of
25 population settled along the shores, communities
-------
! RAYMOND F. CLEVENGER
2 could act independently. So long as you could
3 take your drinking water upstream, empty your
4 sewers downstream, have your swimming beaches
g far enough away from your water intakes, send
6 your fishermen to northern Wisconsin and Michi-
7 gan, and have your dishes and clothes washed in
8 old-fashioned soap, you had little concern for
9 problems.
IQ The problems generated by the demand
H for each use of the water, as well as the prob-
12 lems caused by the use itself, could be resolved
13 by setting up a new city department, or creating
14 a new type of municipal corporation, such as a
15 sanitary or water district.
16 And to make a very long story short,
17 this is what we did. Our problems and agencies
18 didn't begin to run into each other until our
19 population increases and our mobility compressed
20 Chicago and Benton Harbor into an hour's drive
21 instead of a day's excursion. Or, to put it
22 more crudely, our problems weren't great until
23 we found that one city's waste was another city's
24 drinking water. Or again, until we learned that
25 thts technological change that helped build the
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413
! RAYMOND F. CLEVENGER
2 factory to hire you for 40 hours each week also
3 spewed into the lake the beach-closers and fish-
4 killers.
5 Each part of the lake fought back. As
6 our problems began running into other problems,
7 we created more problem-solvers. In 1966, an
8 Oceanography Committee of the Federal Council
9 for Science and Technology published an informal
lO report on the "Aquatic Sciences in the Great
H Lakes Area." In summarizing these activities,
12 they found that over 91 State, Federal and inter-
13 national agencies were listed as having some
14 water science activities in the Great Lakes,
15 over 91 of them. And this didn't attempt to
16 list local government activities, much less those
17 of non-governmental entities.
18 Almost all of these agencies are over-
19 worked, understaffed, and Just beginning to get
20 public recognition of the losses because of in-
21 sufficient action, as well as acceptance of the
22 dollar-cost of action. Indeed, as we add staff
23 and increase the number of agencies, we find
24 that with the population growth, we've gotten
25 even further behind. And as the problems
-------
! RAYMOND F. CLEVENGER
2 become critical In more places and more places
8 spend money, they each find themselves in
4 agonizing competition for money, materials,
6 and men to do the Job.
6 Finally, we're finding, as usual,
7 that some of our solutions become bigger prob-
8 lems than the one resolved. Not only are the
9 solutions in conflict, but the agencies, given
10 problems to solve, find themselves in conflict
n with other agencies trying to carry out their
12 own problem-solving mission.
13 Well, one could go on, but you know
14 all of this. Suffice it to say that in a very
15 complex society, we've come to recognize that
IQ what happens in Lake Michigan affects what
17 happens in the other Great Lakes; that the solu-
18 tion to one problem has to be related to the
19 solution for other problems; and that what one
20 unit of government does within its claim of
21 sovereign right must be related to what another
22 unit of government does under its claim of right.
23 In other words, we have come to recognize that
24 there must be both coordination of activity and
25 comprehensiveness of activity.
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I RAYMOND F. CLEVENGER
2 Congress recognized these concepts when
3 it enacted the Federal Wat.er Pollution Control
4 Act under which this conference is being held,
5 But it has gone further and recognized that the
6 coordinated and comprehensive action to solve
7 pollution problems must also be related to
g coordinated and comprehensive programs in every
9 other aspect of the water resource. And hence
10 the Water Resources Planning Act (Public Law
11 89-90) passed in 1965*
12 Under this Act, as you know, Congress
13 authorized the creation of river basin commissions
14 when requested by the States involved and with
15 the concurrence of the Federal Government.
16 In our case, the Great Lakes Basin
17 Commission covers the entire Great Lakes Basin.
18 The Governors have appointed top-level State
19 executives as their representatives. Federal
20 Departments having a responsibility for any
21 water resource work in the Great Lakes have
22 likewise appointed their top executives as members
23 Thus each conferee here has also a representative
24 of your State or department on the Commission.
25 The principal duties of the Great Lakes
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416
1 RAYMOND F. CLEVENGER
2 Basin Commission are:
3 1. To engage In such activities and
4 sake such studies and investigations
j as are necessary and desirable to con-
6 serve, develop, and utilize the water
7 and related land resources of the
8 Great Lakes on a comprehensive and
9 coordinated basis by the Federal
10 Government, States, localities, and
11 private enterprise with the coopera-
12 tion of all affected Federal agencies,
13 States, local governments, individuals,
14 corporations, business enterprises, and
15 others concerned; and
16 2. To engage in such activities and
17 make such studies and investigations
18 as are necessary and desirable to:
19 (a) Serve as the principal agency
20 for the coordination of Federal,
21 State, interstate, local and non-
22 governmental plans for the develop-
23 ment of water and related land
24 resources of the Great Lakes;
25 (b) Prepare and keep up to date,
-------
1 RAYMOND P. CLBVENQER
2
to the extent practicable, a compre-
3
henslve, coordinated, joint plan for
4
Federal, State, Interstate, local
5
and non-governmental development of
6
water and related land resources;
7
g provided, that the plan shall in-
9 elude an evaluation of all reason-
10 able alternative means of achieving
optimum development of water and
12
related land resources of the Great
13
Lakes Basin, and It may be prepared
14
15 in stages, including recommendations
16 with respect to individual projects.
17 (c) Recommend long-range
18
schedules of priorities for
19
the collection and analysis of
20
basic data and for investigation,
21
22 planning, and construction of
23
24
25
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418
! RAYMOND F. CLEVENGER
2 projects; and
3 (d) Foster and undertake such
4 studies of water and related land
6 resources problems of the Great
6 Lakes area as are necessary in
7 the preparation of the plan de-
8 scribed in clause (b) above.
9 There is much more that could be said
10 about our Great Lakes Basin Commission, but suf-
U fice it. to say that in my opinion this conference
12 may want to take a full and measured look at what
13 might be done by utilizing this legislation in
14 conjunction with your existing State and Federal
15 laws specifically aimed at pollution control.
16 Someone somewhere pointed out how
17 the Basin Commission could be used. It states
18 well the point that enactment of the Water
19 Quality Act of 1965 marks the important policy
20 shift of the National water pollution control
21 program from an emphasis on the abatement of
22 pollution to the 'controlled management of future
23 water quality.
24 Authority and responsibility to manage
25 the quality of the waters of the Lake Michigan
-------
I RAYMOND F. CLEVENGER
2 Basin, however, remain widely dispersed among
3 Federal, State and local agencies. Because of
4 this dispersion, an urgent need, along with
5 essential improvements in State and local
g pollution control programs, is intergovernmental
7 arrangements through which all levels of govern-
g ment will coordinate their separate programs in
9 the basin to achieve the water use and water
10 quality objectives established in the water
H quality standards program.
12 The specifics of these arrangements
13 include the following essential functions or
14 features:
15 1. The arrangements are to provide
16 means for coordinating water quality
17 management programs within the Lake
18 Michigan Basin as a whole, within
19 individual watersheds tributary to
20 the lake, and within major metropoli-
21 tan areas in the basin.
22 2. The arrangements are to involve
23 as participants all of the Federal
24 agencies, State and local governments
25 in the basin who manage the quality of
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it-gO
I RAYMOND F. CLEVENGER
2 the basin's water resources, and where
3 appropriate, industries and other pri-
4 vate activities as well.
5 3« Initial emphasis is to be given to
6 the development of coordinated programs
7 to implement standards already estab-
8 lished in the Lake Michigan Basin and
9 then to serve as the vehicle for joint
10 and continuing development of inter-
11 governmental action programs to improve
12 these standards.
13 Specific elements to be included in
14 these coordinated implementation programs are,
15 assuming that you and others accept these
16 recommendations:
17 a. Identification of and agreement
18 on priorities among the various re-
19 search, technological, financial, or
20 institutional problems and needs in
21 the Lake Michigan Basin.
22 b. The particular waste treatment or
23 other water-quality management activ-
24 ities which each level of government,
25 or other participating entity, will
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421
t RAYMOND P. CLEVENGER
undertake with respect to the
z
planning of new or improved con-
3
tinuing programs.
c. Methods of funding planned
5
projects and programs in the Lake
6
Michigan Basin, including cost-
sharing arrangements where these
O
are necessary for a particular
9
10 project or activity.
d. Arrangements for the flow and
._ exchange of data which are necessary
., for a coordinated and basin-wide
10
14 approach to the water-quality manage-
15 ment program in the Lake Michigan
16 Bas in.
17 e. Procedures for Initiating or
18 continuing needed studies and planning
19 to develop technological, financial,
20 or institutional solutions to existing
2i impediments to effective basin-wide
22 management of water quality in the
23 Lake Michigan Basin.
24 f» Arrangements for consultation
25 with civic and other groups interested
-------
1 RAYMOND F. CLEVENGER
2 in the quality of the waters of the
3 Lake Michigan Basin and for the dis-
semination of information to the
citizens of the basin and their
elected representatives in order
that the latter may understand and
properly guide the basin's water-
9 quality management programs.
10 S« Methods for reviewing progress
under a particular action program,
12 and based on such review, the adjust-
13 raent of the current program or formu-
14 lation of a new action program.
15 The vehicle for developing this needed
16 intergovernmental coordination of water-quality
17 management programs throughout the Lake Michigan
18 Basin is the newly established Great Lakes Basin
19 Commission. Including representatives from all
20 States in the basin and from all Federal water
21 resources agencies, this entity is charged by
22 the Water Resources Planning Act of 1965 with
23 serving as the principal agency for the coordi-
24 nation of Federal, State, local and private
25 plans for the development of the water and related
-------
1 RAYMOND F. CLEVEHGER
2 land resources of the Great Lakes Basin. As one
3 phase of this role, the Commission also will
4 develop, if needed, more permanent organizational
5 or procedural arrangements for managing the water
6 and related land resources of the Great Lakes
7 Basin.
8 It Is urged, accordingly, that all
9 Federal agencies, the States and local governments
10 In the Lake Michigan Basin, and private Interests
11 concerned with water-quality management in the
12 Basin, join in employing the structure and
is program of the new Commission as the vehicle
14 through which all levels of government In the
15 Basin will coordinate their pollution control
16 programs to achieve the immediate and long-range
17 objectives of an optimum water-quality program.
18 Gentlemen, what has been said in this
19 is what I believe must be included in your
20 recommendations.
21 In conclusion, let me add one point
22 that I'm sure we all recognize. What's said
23 above relates primarily to institutional change
24 for better pollution fighting or pollution
25 abatement. But we also must recognize that at
-------
424
! RAYMOHD P. CLEVEHGER
2 some point we have to find ways of making
3 choices between alternative uses of our water
4 resources. One function of the planning effort
5 is to have choices made with knowledge and
6 wisdom, not alone with emotion*
7 Thank you very ouch.
g (Applause.)
9 MR* STEIN: Thank you, Mr. Clevenger.
10 Any comments or questions?
11 Mr. Foston.
12 MR. POSTON: I would like to ask Mr.
13 Clevenger about the attitude his Commission
14 might take toward conclusions and recommendations
15 put out by this conference, whether they would
IQ be incorporated as part of his plan and what his
17 Commission might do toward assistance in
18 implementing recommendations made by this
19 conference.
20 I recognize that Mr. Clevenger's
21 organization is relatively new and his staffing
22 is Just under way, and our agency as well as
23 other State agencies represented here today
24 have similar working relationships with the
25 Great Lakes Basin Commission, and I wondered
-------
425
1 RAYMOND F. CLBVBNGER
2 whether he would care to comment on just how
3 his agency and this conference might work
4 together.
5 MR. CLEVENGER: Let me say, Mr.
6 Poston, that first I am sure that our Commission
7 is going to give careful consideration. Along
g with you on your rostrum I see one member of
9 the Commission, Mr. Mitchell, the alternate
10 member of the Commission, Mr. Oeming, another
11 alternate member from Wisconsin, Mr. Holmer.
12 And with me today I have got a couple of others
13 in case we run into any serious problems.
14 Let me answer twofold. First of all
15 I am sure the Commission is going to--this is
16 one of the problems on our next agenda for
17 a meeting February 15, which I hope will be
18 Just after you conclude these, and if I spend
19 too much time here you won't be able to conclude
20 then, I realize. But let me give you my own
21 views on what I think.
22 I think we have got too many compre-
23 hensive and coordinating agencies doing separate
24 comprehensive and coordinating studies and they
25 never meet together. I think that it would be
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426
I RAYMOND P. CLEVENGER
2 wrong if we left this conference proceeding,
3 not necessarily these next few days, without
4 seeing if we can't incorporate this entire
5 structure that you create and link it within
6 the Commission.
7 You see, our Commission is not a
g separate agency. Our Commission is the State
9 of Michigan and every other State in the basin,
10 it is the Federal agencies that have a water
H resource responsibility. The whole idea was
12 to pull it together and not add on another
13 level. We have got too many levels, too many
14 people, too many agencies. We have got to try
15 and bring it together.
16 I don't think we have the personnel
17 and the talent in our society, much less in
18 the Great Lakes Basin or the Lake Michigan
19 Basin, to do this Job two, three or four times.
20 We only can do it once. And what you do ought
21 to be what is done by us, because this whole
22 structure--you know, we all operate under the
23 Federal and State laws—this whole structure
24 can be brought together and we ought not
25 duplicate it.
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427
I RAYMOND F. CLEVENGER
2 Now, that is my view. And I have a
3 hope that this Is going to be the view, as I
4 suggested, of the conferees. It is a question
5 of linking, not a question of duplicating. It
6 is a question of coordinating, not of controlling.
7 It is a way of letting the experts have their
8 expert knowledge apply to where the problem is
9 and not trying to— You know, we run out of
jo money and we run out of people and every agency
H is trying to do something that others are trying
12 to do, but each one of the agencies say, "We
13 don't have enough money, we don't have enough
14 people, we don't have that critical mass that
15 is necessary."
16 Well, for God's.sake, let's bring these
17 resources and people and money together and do
18 the Job. It only has to be done once. When
19 you clean up the pollution of Lake Michigan
20 in the Illinois and Indiana and Wisconsin and
21 Michigan parts of the lake, there is nothing
22 more to clean up.
23 Well, you ought to hear me on Sunday
24 morning.
25 (Laughter.and applause.)
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428
1 RAYMOND F. CLEVENGER
2 You know, if I had known, Murray,
3 that you were going to ask the questions, I
4 would have suggested a few.
5 (Laughter.)
6 MR. STEIN: Any further comments or
7 questions?
g MR. BOSTON: Well, I couldn't agree
9 with Mr, Clevenger more, that we don't need
10 planning, what we need is some action now.
11 And I think that is what we are here at this
12 meeting for, to generate some action. And I
13 hope that that is what comes out of this con-
14 ference.
15 MR. CLEVENGER: May I intrude on
16 maybe your dinner hours, and let me suggest
17 what we are doing, what we are trying to do,
18 in the alewife situation.
19 You know, when X amelied the alewives
20 and when I tried to walk through them, they
21 looked like they were awful pollutants to me.
22 But we are not yet sure whether we are going
23 to describe dead alewives as pollutants.
24 MR. STEIN: Who isn't sure?
25 MR. CLEVENGER: Thank you very much.
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429
I RAYMOND F. CLEVENGER
2 I agree with you. And now that it has been
3 decided (laughter and applause) let me tell
4 you what I think we ought to do.
5 You know, when the alewlves were about
6 three feet high and the stench had gotten back
7 to Austin Boulevard, one of the Departments,
g the Department of Interior, set up a task force
9 within itself to exazalne the alewife problem.
10 Now, all of us would have thought that the
11 alewife problem was the millions of dead ones
12 on the beaches. The task force met and con-
13 sidered that the role of the Federal Government
14 is not necessarily that of a dead fish picker-
15 upper and that really their role was to look
16 at the imbalance, the ecological imbalance in
17 the lake, and the task force turned 180 degrees
18 around and said, "Well, we won't worry, we will
19 do some research on picking up that fish,"
20 although I think we could pretty well tell
21 them how to do it,"( laughter) "but we will look
22 at the long-range problems and do a study and
23 give us five million dollars."
24 The State of Michigan, as Mr. Kelley
25 pointed out, had a smaller task force or group
-------
439
I RAYMOND P. CLEVEHGER
2 to look at picking up dead alewives and they
3 came back and said, "Give us $875,000 and we
4 can pick it up. We need so many new machines,
5 we need so many new people, we need so many
6 trawlers, and we can do a Job." They did not
7 consider what could be done with the machinery,
g with the men, with the equipment, with the
9 budgets that they had.
10 Another agency recently came out and
ll said, "what we need is $3,000,000 and it ought
12 to be split between the Federal Government and
13 the State Governments." And they arrived at
14 that $3,000,000 by the technique of saying,
15 "Well, if it costs $875,000 for Michigan, that
16 is about a third of the distance around the
17 lake, it must cost three times that, add a
18 little more in case it gets some Kentucky wind
19 damage and it is $3,000,000." And that was
20 the scientific study.
21 Our Commission felt that we ought to
22 do this--and we have on our Commission the
23 responsible administrators in the States and
24 the responsible administrators in the Federal
25 agencies.
-------
1 RAYMOUD P. CLEVENGER
2 We said why can't we first take the
3 technical competence that we have and work out
4 a comprehensive answer? Here is the problem,
5 dead fish. How, what are we going to do with
6 it? Don't worry about State boundary lines
7 or this agency, but what do you do when you
g have got that many dead fish? When we get
9 that program, then let's call together aid
10 involve these in developing them, the State
11 agencies, the Park District of Chicago, the
12 recreational districts of the States, the
13 municipal governments, the health departments,
14 every single governmental agency whether
15 Federal, State, local, and voluntary groups,
16 and the Chamber of Commerce groups over on
17 our side of the lake that represent some of
18 the people that lost $50,000,000, and let's
19 see if we can divide up the work that has to
20 be done and coordinate the work and have each
21 one of them within their existing capabilities
22 do part of the Job.
23 Now, when we are finished we may
24 still need more money and I hope we get it.
25 But if we do ask for it, it is going to be
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432
RAYMOND F. CLEVENGER
asked for on the basis of knowing that all of
3 the resources ve have are committed In a compre-
4 hensive and coordinated way and not duplicated
and not one at a time. You know, we—well,
. there is much more that could be said.
D
7 But this is how X think and this is
8 what I think coordination and comprehensiveness
involve. This is how I think the Federal Govern
10 aent and the State Government and the local
n governments and the private individuals can
work together to solve the very real problems
13 of the lakes and the other resource problems
14 that we have*
15 MR. STEINJ You know, you just raised
16 the ante. You said 8?5- I read Nick Olds'
17 statement again and it says 827, and as I
read it they want the Government to pay half.
19 Do you go down to their 827 figure?
2o MR. CLEVENGER: You always want to
21 read, Mr. Stein--well, you are a lawyer—you
22 always want to read a lawyer's figure very
23 carefully.
24 (Laughter.)
25 MR. STEIH: That is right.
-------
! RAYMOSD F. CLEVEBGER
2 MR. CLEVENGER: That la the Michigan
3 figure?
4 MR. STEIN: That is rig*t. Bat you
6 had 875. I figured that—
6 MR. CLEVENGER: Oh, are you quibbling
7 about 827 to 875? Veil, you know that we plus
8 or minus 100,000,
9 (Laughter,)
jo MR. STEIN: That is right. You are
11 a country lawyer, I am a big city lawyer, and
12 that is the way we do business. The
13 difference is $48,000. If I can knock it down
14 half I have Just saved a claim or an intended
15 claim against the Federal Government of $24,000.
1$ I might have made--
17 MR. CLEVBNGER: We will knock it down.
is We will knock it down.
19 MR. STEIN: But I agree this is a
20 point,that we should get together with the
21 alewife problem.
22 I would like to make one suggestion.
23 There is some confusion on that in the statements
24 that are made. I don't think there has been
25 any linkage, and we are going to get into the
-------
RAYMOKB P. CLEVENQER
2 alewife problem in more detail a little later.
3 And we were into that in rather complete detail
4 in our lover Lake Michigan conference here a
5 few months ago—at the progress meeting.a few
6 months ago.
7 There is no indication that pollution
causes the death of alewives, but I don't think
9 anyone who was around Lake Michigan last summer
10 would contend that after the alewives die they
n don't create a pollution problem*
MR. CLEVENGER: I agree. Thank you
for saying so.
14 Thank you very much, gentlemen,
15 MR. STEIN: Thank you
MR. HOLMER: Mr. Stein.
17 MR. STEIN: Yes, sir.
18 (Applause.)
19 MR. STEIH: Would you wait a moment,
Mr. Clevenger?
21 MR. HOLMER: This new Commission of
22 which Mr. Clevenger is the Chairman is neither
23 a Federal nor a State agency. It is a Federal
24 hyphen State agency, as he indicated when he
25 began. There is a fairly significant difference
-------
1 RAYMOND P. CLEVENGER
2 and It raises a number of questions about the
3 proposed use of the Basin Commission in quite
4 the way that Mr. Clevenger was suggesting.
5 This is a very useful organization
6 because of its composition. But if, for
7 example, the problems that confront this
g conference were simply to be referred to the
9 Commission for coordination and for planning,
10 that would leave us in a sad way, would it not?
11 MR. CLEVENGER: And I hope you didn't
12 understand that I was suggesting that. I am
13 not.
14 MR. HOLMER: All right.
15 The chief function of the Commission
16 under the Federal Water Resources Planning Act
17 is the development of a comprehensive water
18 management plan. Is that a succinct
19 statement of the mission?
20 MR. CLEVENGER: There are two. That
21 is one.
22 MR. HOLMER: And the other?
23 MR. CLEVENGSR: The other is to engage
24 in 8ucn activities and make such studies and
25 investigations as are necessary to carry out
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436
1 RAYMOND P. CLEVENGER
2 the policy of the Act, and the policy of the Act
3 is to conserve, develop and utilize the water
4 and related land resources of the Great Lakes
5 on a comprehensive and coordinated basis by
6 the Federal Government, States, localities and
7 private enterprise with the cooperation of all
8 affected Federal agencies, States, local govern-
9 ments, individuals, corporations, business
10 enterprises, and others concerned. And then
U it says to engage in such activities and make
1| such studies and investigations as are necessary
13 to carry out the planning.
14 But there are two duties imposed by
15 Section 204 of the Act. And because this re-
16 quires that the actions be done by consensus
17 and with the participation of all the govern-
18 mental units, it is the authority to do it. it
19 doesn't compel you to do it, but it is an
20 authorization to do it. It permits us to have
21 this structure within which all of the agencies
22 can coordinate and work together.
oo
** MR. HOLMER: Now, we have a related
24 question. Under the Act under which this
25 conference is being held, the recommendations
-------
437
RAYMOND F. CLEVENGER
of the Secretary are made to the water pollution
. control agencies of the States and to the
o
. Federal agencies. Is this not a correct
. reading of the statute?
_ MR. STEIN: We make those to the
o
State. Now, we do have a Federal Executive
8 Order. It amounts to the same thing. I just
want, because we are talking for the record,
to be accurate. We proceed with the Federal
.. agencies under the Federal Executive Order,
but when the conferees unanimously have made
recommendations and conclusions about Federal
agencies and they make them to the Secretary,
15 the Secretary proceeds with the system of
getting action under the Federal Executive
Order to clean up those Federal agencies.
lg Meanwhile we make recommendations to the State
19 water pollution control agencies to take ap-
20 propriate action under State and local law
21 to clean up pollution in their Jurisdiction.
22 MR. HOLMER: Recommendations made
23 to the State agencies are, if ignored by the
24 States, enforceable in the courts. Would a
25 recommendation made to the Basin Commission
-------
438
1 RAYMOND P. CLEVENGER
2 be subject to either the Executive Order or
3 the statute?
4 MR. STEIN: Our statutory procedure
5 is clear, and we move inexorably either to
6 get the answer telling us we are not going to
7 do it or we are going to follow out the
8 recommendations here and clean up pollution.
9 And I think that has been our record.
10 I know Mr. Lynch made some reflection
11 in his talk that is what we do, but right now
12 I think we will hear from Mr. Poole and Mr.
13 Klassen.
14 In Chicago we probably have the
15 biggest industrial waste cleanup construction
16 program in the history of the country going
17 on right under our noses as the result of a
18 Federal-State conference such as this and the
19 oil industry and the steel industry is moving
20 ahead.
21 New York City is just putting in a
22 $220,000,000 plant going in Manhattan from 138th
23 to 145th Street, one of the largest in the
24 country.
25 But I think if we ever go and follow
-------
l RAYMOND F. CLEVENGEB
2 this through, Mr. Holmer is entirely right,
3 we have to follow our statute. First we
. refer to the State agency. We have in almost
_ all cases had satisfactory results after such
o
referral. As far as I am concerned, the States,
o
particularly the States in this area, have
Q done a Magnificent Job in cleaning up pollution
O
after the Federal-State conferences and they
have cleaned it up under State law, where we
have set the schedule and come up with specifics.
I am not talking about special programs. But
we can go down step by step and these programs
that the States have are proceeding. But we
15 have no authority except in our planning author-
i t y, to refer it to anyone else under this
procedure of the Federal Act and we will follow
lg the Act's procedures specifically.
19 The Congress, as you know, is very,
20 very specific in the enforcement provisions
21 of the Act. They almost left nothing to chance,
22 very little to discretion at this stage, and
23 we will work with the State agencies as we
24 always have.
25 Any other questions or comments?
-------
1 RAYMOND P. CLEVENGER
2 If not, thank you very much, Mr,
3 Clevenger.
4 MR. MITCHELL: Mr. Chairman,
5 MR. STEIN: Yes.
6 MR. MITCHELL: I would like to make
7 ! a comment.
8 MR. STEIN: Mr. Mitchell,
9 MR. MITCHELL: In regard to the Great
10 Lakes Basin Commission, the Act says that
11 nothing Is construed In the Act to diminish either
12 Federal or State Jurisdiction, and if I inter-
13 pret Mr. Clevenger's comments he is not saying
14 that we should diminish our own respective
15 jurisdictions. He is saying that as we plan
16 on a long-range basis that we ought to take
17 advantage of this new interstate or inter-
18 governmental agency.
19 MR. CLEVENGERt What I read about this
20
very two or three pages of recommendations,
21 sometime in private I will tell you where I
22
got those.
23
But the whole point of this is we
24 ought not to work in isolation. I think we
25
can find a way and I think this is something
-------
441
1 RAYMON0 P. CLEVENGER
2 that is going to happen.
3 It is relatively easy, I would hope,
4 at this point to recognize the need to stop
5 point by point pollution. What you are
0 recommending is really what people have felt
7 for years and you are marking it and doing that
g Job. But in order to clean up the lake, there
9 is going to have to be some coordinated activity
10 and we ought not to just sort of separate and
11 have separate groups of the same people trying
12 to solve essentially the same problem.
13 MR. STEIN: I think we all agree with
14 that. And as I read the reports on this, Just
15 merely correcting point by point pollution
16 around the fringes of the lake very well may
17 not do the job here. We may have to go quite
18 a bit beyond that. As a matter of fact, our
19 roster of experts tomorrow calls for specialists
20 on eutrophication, currents, phosphate removal,
21 and I think there are very many broad problems
22 that we are going to have to get into that
23 the conferees are going to have to consider.
24 Are there any comments or questions?
25 If not, thank you very much.
-------
442.
j I RAYMOHD F. CLEVENGER
2 MR. CLEVENGER: Thank you very much.
„ MR. STEIN: Veil, Mr. Poston, we have
o
. run out of lawyers. You can "bring on your
_ engineers and scientists.
(Laughter.)
MR. POSTON: Well, I would like to
ask Mr. Stoddard, Regional Coordinator for
O
Q the Western Great Lakes area of the United
9
10 States Department of the Interior, to come
u up at this time. I think that there are
12 several other Department of Interior agencies
13 represented and Mr. Stoddard will possibly
14 introduce those.
15 I wondered, Mr. Stoddard, if we might
16 have some report on the alewife situation?
17 MR. STEIN: If you would like to
18 gauge yourself, we would like to get out
19 sometime around 5 o'clock and gauge your
20 presentation to that.
21 MR. STODDARD: I will. We Will post-
22 pone the alewife discussion until I finish the
23 formal statements here, Mr. Poston.
24 MR. POSTON: All right.
25 MR. STODDARD: I have "been asked by
-------
443
! CHARLES H. STODDARD
2 the Geological Survey and the Bureau of Mines
3 to present their formal statements. They are
4 unable to be here today. And following these
5 statements the other Bureaus which you referred
§ to will give their statements in person.
7
g STATEMENT OF CHARLES H. STODDARD
9 REGIONAL COORDINATOR, WESTERN GREAT LAKES AREA
10 TJ. S. D2PARTN3NT OF THE INTERIOR
11
12 MR. STODDARD: My statement is quite
13 brief. It is not intended to duplicate, co-
14 ordinate nor provide any advance disclosure
15 of the complete and carefully drawn statements to be
16 made by the several Interior bureau regional
17 offices, but rather to make some suggestions
18 for your longer term consideration, particu-
19 larly in the research field, by the universities,
20 by the Federal bureaus, by the State agencies,
21 and so forth.
22 During the past year I have had an
23 opportunity, a rather unique opportunity, to
24 spend some time going into the whole question
25 of the technology and the economics of the
-------
1 CHARLES H. STODDARD
2 various aspects of the quality of the environ-
3 ment and the deterioration that has taken
4 place. And out of these studies I would like
5 to identify for your consideration a few of
6 what seem to me highly significant points
7 relative to controlling Lake Michigan pollution,
8 particularly in the face of our expanding
9 population and economic growth in the Basin.
10 I think from our earlier discussions
11 it is quite clear that unless present waste
12 disposal is curtailed the lake is headed for
13 fairly rapid deterioration. It is equally
14 clear that we must deal immediately with the
15 i backlog of needed treatment facilities, both
16 industrial and municipal, which must be in-
17 stalled to arrest this deterioration and which
18 can no longer be postponed. Nationwide the
19 backlog of investment has increased from six
20 billion dollars in about 1958 to a figure
21 Just released in the last several days from
22 the Federal Water Pollution Control Administration
23 of twenty-six billion dollars. This is 10
24 years of growth of backlog despite the really
25 major efforts that we have been making during
-------
1 CHARLES H. STODDARD
2 the 1960's.
3 It is probably less clear that even
4 if we deal with this backlog the real threat
5 in the foreseeable future is the accelerating
6 rate of our economic and population expansion
7 the effluent of which could bring on final
8 disaster. It is estimated that in 50 years
9 water use in the Great Lakes, Lake Michigan,
10 will be 3 times the present use/ that our
11 economic activity could be 6 times the present
12 rate of activity. I think this perhaps takes
13 exception with Chairman Clevenger's point
14 that onee we clean up the lake it is done
15 for, we don't have to worry anymore. I thinK
16 our real worries are ahead of us.
17 It is even less clear that we must
18 think about and plan for built-in prevention
19 as well as correction of present pollution
AA
I sources if the present eutrophication trends
21
are not only to be stopped but reversed. This
22
means acceleration of the technology of waste
23
utilization, not simply treatment.
24
We are hardly even now discussing
25
the question of whether prevention can and
-------
446
CHARLES H. STODDARD
2 should consist of recycling presently wasted
3 materials by considering them a valuable
natural resource to be utilized and no longer
wasted. Fertilizers, minerals, useful chemi-
cals and other byproducts needed by our ex-
panding economy can be derived from currently
wasted resources.
The Milwaukee Sanitary Commission
10 years ago pioneered in the production of
Milorganite—I think most lawn keepers are
12 familiar with Milorga«ite--and they sold this
13 at a loss, but they turned loose fewer solids
14 into Lake Michigan and produced some revenue
from this process. We have hardly mentioned
16 the possibility of subsidizing the cost of
utilization of these waste materials (if they
lg do not break even in processing)as an alternative
19 to spending large sums to partially treat them
20 and then dispose of the residual effluents
21 anyway
22 It has been mentioned that we do
23 have to give special attention to controls
24 over the two new types of pollution which
25 are hitting us quite recently, and we can foresee
-------
447
[T~~CHARLES H. STODDARD
much more concern in the future over them.
2
Thermal pollution and agricultural pesticides,
3
if left unattended, could undo all of our
present efforts to control other sources.
5
Athelstan Spilhaus, the geophysicist, made
6
a rather interesting statement at the American
Association of Advancement of Science on the
O
whole question of the total extinction of
•f
. Junk and waste by carefully-designed processing
and recycling of all waste products. "Junk,"
.. he said, "is a word that epitomizes the
13 immorality and ignorance of not recycling.
14 What we need is the Jump toward total recycling,
15 control at the source, symbiosis of industry
16 and massive experiments with entirely new
17 technologies toward this end.
18 On all of these aspects of the prob-
19 lem, the Interior team of bureaus has accumulated
20 much information and is ready to go into research
2i to find answers to technical and economic im-
22 pediments still blocking effective recycling
23 of wasted materials.
24 Now, I have the statements here of
25 the Bureau of Mines and the Geological Survey.
-------
1 CHARLES H. STODDARD
2 Area Director Bishop of the Bureau
3 of Mines had a very sore throat and was hoarse,
4 so that he wasn't able to give it.
5
6 STATEMENT OP THE U. S. BUREAU OF MINES
7 0. M. BISHOP, AREA DIRECTOR, AREA III
8
9 The Department of the Interior has
10 recently issued Conservation Yearbook No. 4,
11 titled ttMan--An Endangered Species?" It
12 states, wMan stands at a fork in his environ-
13 mental road to the future." Will he sue-
14 cumb to overpopulation and technology
15 that too often fails to consider the en-
16 vireminent and the necessities of ecological
17 systems other than that which he thinks
18 to be his own?
19 Modern man's use of minerals illus-
20 trates both his genius and his failure in this
21 respect. In the Chicago Harbor area the steel
22 industry produces tens of millions of tons of
23 steel and iron products annually, and each
24 year also produces several hundred thousand tons
25 of flue dusts which are recovered from the
-------
I U. S. BUREAU OF MIRES
2 open hearth, basic-oxygen, and electric furnace
3 off-gases, but are largely not reprocessed for
4 their 60 percent Iron content because the
5 physical structure, zinc content, or some other
6 factor makes It more economic to ship In new
7 iron ore rather than utilize the flue dust.
8 Such flue dusts formed a very considerable
9 part of the 7.^ million cubic yards of material
10 dredged from the Indiana and Calumet Harbor areas
11 from May 19*1-9 through July 1967.
12 These 7.^ million cubic yards of
13 dredging contained iron oxides, zinc, cadmium,
14 and petroleum sludges that are not only pollutants,
is but also are mineral resources in our hands if we
16 follow the conservation ethic.
17 We cannot afford to treat these
18 materials solely as pollutants or garbage.
19 They must also be looked upon as the raw
20 material for research, Jobs, and manufactures.
21 Just as the astronaut must learn to meet long-
22 term water, food, and material supply by re-
23 cycling his wastes, so must man on his space
24 vehicle, Earth, recycle his wastes.
25 I do not believe old automobile hulks
-------
l U. S. BUREAU OP MINES
2 or garbage should be buried at sea nor do I
0 believe Lake Michigan the proper burial ground
o
4 for the flue dusts dredged from the Chicago
. Harbor by the Corps. Such waste products
5
. must be recycled to use, and if our technology
o
is now short, then by some combination of incen-
tives it must be caused to grow until it is
O
9 adequate to the purpose.
0 Incidentally, output of flue dusts
n is increasing. This is because the lower cost
12 more productive basic-oxygen steel process
13 to which industry is converting produces roughly
14 three times as much flue dust per ton of ingot
15 steel as did the old open hearth furnace.
16 In closing, I would like to point
17 out that technology can be developed to conserve
18 this resource, but that research in both
19 industry and government laboratories must be
20 stimulated to the task. The research facilities
2i of the Bureau of Mines, which are intensively
22 geared to primary mineral raw material studies
23 j and analysis, stand ready for an expanded role
24 in finding economic means for utilizing and
25 recycling. These valuable resources are now being
-------
1 GEOLOGICAL SURVEY
2 wasted and, in fact, damaging nan's environment.
3 - - -
4 MR. STODDARD: I have the Geological
5 Survey statement also here.
6
7 STATEMENT OP THE U. S. GEOLOGICAL SURVEY
8 PROGRAM IN THE LAKE MICHIGAN BASIN, 19^8
9
10 Facts on the water resources and the
11 changing water situations throughout Lake Michigan
12 Basin are a foundation for the planning of water
13 use and development and for the solution of water
14 pollution problems. Information on the occurrence,
15 quantity, and quality of water in streams and in
16 underground reservoirs has been collected, analyzed
17 and published for many years by the U. S. Geologi-
18 cal Survey in close cooperation with State agencies
10 The collection of water resources data in
20 the Lake Michigan Basin has been in progress for
21 well over 50 years. Thus, the Department of the
22 Interior, through the Geological Survey, has had a
23 long history of close cooperation with State
24 agencies in appraising the water resources of the
25 States bounding Lake Michigan. The State agencies
-------
1 QKOLOOICAL SURVEY
2 and the USGS work in very close cooperation In
3 order that the work of one may supplement that of
4 the other without conflict and duplication. Close
5 cooperation is also maintained with other Federal
6 agencies, such as the Corps of Engineers, the Soil
7 Conservation Service, and the Bureau of Sport
8 Fisheries and Wildlife.
9 The tr.S, Geological Survey cooperative
10 water program is unique among water agencies. It
11 does not regulate water; nor does it market or pro-
12 duce hydroelectric power. It has no water develop-
13 ment projects to promote, no dams to build, no
I* irrigation projects to operate. Its purpose,
15 rather, is to evaluate the quantity, quality and
M distribution of water resources and to make such
17 information available to the public and to agencies
18 with the above functions. It is unique also in the
19 extent to which it shares with State and local
20 water agencies the responsibility for planning and
21 financing investigational programs directed toward
22 acquiring knowledge about water.
23 Investigations now in progress in States
24 lying within the Lake Michigan Basin include the
25 systematic observation and measurement of the
-------
1 GEOLOGICAL SURVEY
2 changing water situations in the streams and
3 ground-water reservoirs. Streamflow, sediment,
4 and quality data are collected for major and many
5 minor tributaries, and ground-water levels and
6 water quality data are collected for underground
7 reservoirs. Studies are also underway to deter-
8 mine the availability, quantity, use, and quality
9 of surface and ground water in river basins,
10 counties, and problem areas. One purpose of these
n investigations is to provide an understanding of
12 the water situation as related to specific prob-
13 lems. Also, information on the effects of land
14 and water use on the hydrologic environment may be
15 used by water managers to assist in solving current
16 and future water pollution problems.
17 Cooperative studies of the water resourced
18 in the Lake Michigan Basin have resulted in numerous
19 published reports describing the water situation in
20 many areas of present and potential water develop-
21 ment. Information on the results of these reports
22 and on specific basic data may be obtained through
23 the contacts listed on the attached page. Addi-
24 tional detailed information, such as mineral r
-------
454
l
2
3
4
6
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
GEOLOGICAL SURVEY
divisions of the USGS.
The U.S. Geological Survey and cooperating
agencies have an interest in furnishing accurate
hydrologic data to water management agencies re-
sponsible for the definition and abatement of pol-
lution.
January 19, 1968
Sources of Information on the
Geological Survey Program in
the Lake Michigan Basin, 1968
Information on publications and basic
data on water within tributary basins, including
ground water, surface water, and chemical quality
of water, may be obtained through the following
contacts:
Michigan - Arlington D. Ash, District Chief
Water Resources Division, USGS
Room 700, Capitol Savings and
Loan Building, Lansing, Michigan
1*8933
Wisconsin - C.L.R. Holt, Jr., District Chief
Water Resources Division, USGS
1815 University Avenue
Madison, Wisconsin 53706
Illinois -
Indiana
William D. Mitchell, District Chlfcf
Water Resources Division, USGS
605 South Neil Street
Champaign, Illinois 61820
Malcolm D. Hale, District Chief
Water Resources Division, USGS
Room 516, 6ll North Park Avenue
Indianapolis, Indiana 46204
-------
455
1 GEOLOGICAL SURVEY
2 Information on mineral resources and
3 topographic mapping may be obtained through the
4 following contacts:
5 Carl E. Button, Research Geologist
Geologic Division
6 U. S. Geological Survey
222 Science Hall
7 Madison, Wisconsin 53706
g Daniel Kennedy, Central Region Engineer
Topographic Division
9 tJ. S. Geological Survey
Box 133
10 Rolla, Missouri 65401
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
-------
456
! CHARLES H. STODDARD
2 That is the conclusion of the formal
3 statement.
4 Now, Mr. Boston asked about alewives.
6 John Mitchell is my co-task force chairman—is
6 that the title that we have, Mr. Clevenger' —
7 on the Great Lakes Basin Commission? The work
8 that is now underway by a Joint group of Federal
9 and State agency people, we haven't received
10 any draft report of suggestions of how to deal
u with this. The proposal is that at the February
12 15 meeting of the Great Lakes Basin Commission
13 there will be a report by the alewife working
14 planning task force for consideration by the
15 Commission. And the Commission then will act
16 upon the recommendations of this working task
17 force, presumably to call a conference sometime
18 shortly, thereafter, for the purpose of pulling
19 together the various State and Federal and local
20 agencies and private groups into a coordinated
21 team for handling what probably will be a crash
22 program if we have a die-off this summer similar
23 to last summer. This is essentially a fire
24 department type of activity getting ready for
25 the event of an emergency. All of us hope we
-------
457
l CHARLES H. STODDARD
2 don't have it, but if it happens again we will
3 be more prepared than we were last summer.
4 I think that is about all I can tell
6 you about it right now, Mr. Poston.
6 MR. STEIN: Are there any comments
7 or questions?
g MR. HOLMER: I have first a procedural
9 question. Will the Federal witnesses be pre-
10 sented throughout the conference so that we
11 might pose our questions perhaps in a more
12 orderly way? My question has to do with taconite,
13 for example, at this point. I don't want to
14 miss the chance while we have the Bureau of
15 Mines statement before us.
16 MR. STEIN: The point is, some of the
17 people we have here are very busy. I don't know
18 what their schedule is. They certainly haven't
19 been committed to stay here a long time.
20 However, we will have the experts here who
21 will be able to answer the questions. This
22 is a question of procedure.
23 If you have something on taconite,
24 you might ask that as early as possible, because
25 I am not sure we have the Bureau of Mines person
-------
l CHARLES H. STODDARD
here, tout ire can get them here before this
z
conference Is over or get you the answer..
3
MR. HOLMER: The question, Mr. Stoddard,
has to do not so much with the pollution of the
0
water as alternatives in a prevention way to
6
deal with this problem that is concerning us,
7
particularly on Lake Superior at the moment.
o
MR. STODDARD: Let's take the Lake
9
Superior one and then the larger issue of
handling the waste.
,. MR. HOLMER: Would you describe it
iz
for the audience?
is
,. MR. STODDARD: The taconite industry
14
lg is a relatively new one in northern Minnesota.
16 A low grade iron ore, including 30 percent irons
17 is ground very finely and by a magnetic process
lg the iron is retrieved out of this powder and
19 formed into pellets, which are then shipped
20 out in other carriers the same way that natural
21 ore is shipped. The waste product is 70 percent
22 silica and other finely ground material, almost
23 like a talcum powder, and in practically all
24 of the taconite developments that have taken
25 place in Minnesota they have recycled the water.
-------
^_ 459
l ICHARLES H. STODDARD
2 They have taken an old swamp or a lake and
„ used the water constantly In washing off,
3
4 washing out, this waste material.
_ However, one plant, located at Silver
o
. Bay, is turning loose the waste directly into
6
Lake Superior, about 60,000 tons a day. There
have been various claims over the years con-
o
cerned about the fishing falling off there
9 i
10 in the area, about possibly some toxic materials
n being turned loose,about the deposition of sedi-
12 ment. If you look at the topographic chart
13 in reverse of the Great Lakes there in the
14 hall, you will notice there is a big trough
15 in the middle of Lake Superior. The theory
16 is that this taconite waste is all going down
17 into this trough, which is infertile and does
18 not provide any habitat for fishlife. However,
19 as I say, there have been charges that a good
20 deal of this material does stay in suspension
21 and i» carried by the current in a northeast-
22 southwest direction around the lake back around
23 on the Wisconsin side.
24 Until the data are obtained and
25 ' really careful water quality studies are made,
-------
460
1 CHARLES H. STODDARD
2 both in terms of whatever tox4.cl.ty may develop
3 from materials that are turned loose that may go
4 into solution—previously it was thought that
5 these materials were insoluble and therefore
6 caused no trouble. However, there is some
7 evidence that they may be going into solution.
8 Studies of whether the silt that does not go
9 down in the trough does cover up spawning beds of
10 fish and many other related questions are in-
11 volved in this study to find out Just exactly
12 what is happening. And bhls study will probably
13 be carried on by at least four Interior bureaus
U plus the State of Minnesota Conservation Depart-
15 ment.
16 Now--
17 MR. HOLMER: What about prevention?
18 MR. STODDARD: Prevention?
19 MR. HOLMER: Yes.
20 MR. STODDARD: Well, prevention is
21 really the location of these plants away froa
22 the Great Lakes in such a way that it is
23 possible to use a swamp or a large basin which
24 would provide a source of water and also a
25 place to dispose of the tailings so that you
-------
CHARLES H. STODDARD
2 don't have to turn this water loose which
3 presumably would contain any toxicant materials
that would go in solution, if this is the case,
into the streams of the area, into the ground
water or into the subsoil. Now, some of it may
get in the subsoil Just through infiltration,
but I think there is not much problem developed
in northern Minnesota away from the lake with
respect to the recycling of water and disposal
n of the waste. I haven't heard of any.
MR. HOLMER: Thank you.
13 MR. STEIN: Thank you.
14 Thank you very much, Mr. Stoddard.
15 I think we have come pretty close
to 5 o'clock. Now, I would say the people who
17 are going to participate and the attendees
lg can help us with the conference if they would
do two things. One, it would be very helpful
20 if you had copies of your statement to dis-
21 tribute to the conferees. The staff in the
22 back will help you get these duplicated if you
23 don' t have enough.
24 Secondly, when you leave the room,
#
25 remember when you get through those flimsy doors
-------
462
CHARLES H. STODDARD
in the back we can still hear you. Just keep
. your conversation down if you could until you
a
. go outside the anteroom, and that will help
_ facilitate the orderly conduct of the conference
5
and we won't be interfering with the others who
Q
are in here.
With that, we will stand recessed
O
until 9:30 tomorrow morning.
10 (Whereupon, at 5:00 p.m., an adjourn-
ment was taken.)
12
13
14
15
16
17
18
19
20
21
22
23
24
25
* U.S. GOVERNMENT PRINTING OFFICE . 1968 O—312-667 (VOL. I)
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