PROCEEDINGS
Volume 2
Second Session
February 25, 1969
Chicago, Illinois
Pollution of Lake Michigan
and its Tributary Basin,
Illinois, Indiana, Michigan, and Wisconsin
U.S. Department of the Interior • Federal Water Pollution Control Administration
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905R69103
SECOND SESSION
OF THE
CONFERENCE
ON THE MATTER OF POLLUTION OF LAKE MICHIGAN
AND ITS TRIBUTARY BASIN
held in
Chicago, Illinois
February 25, 1969
TRANSCRIPT OF PROCEEDINGS
VOLUME II
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AFTMNOON^SESSION
(2 o'clock p.m.)
MR. STEIN: Let's reconvene.
Calling on Wisconsin, Mr. Voigt.
STATEMENT BY L. P. VOIGT
SECRETARY, WISCONSIN DEPARTMENT
OF NATURAL RESOURCES
MADISON, WISCONSIN
MR. VOIGT: Chairman Stein, fellow Con-
ferees, and ladies and gentlemen.
With the Chairman's indulgence, after a
very ample lunch, I feel more comfortable standing up
as compared with Mr. Klassen and some of the other
States that reported previously.
I am contemplating making ,1ust a brief
overview of some of the happenings in Wisconsin since
the Conference met last, and for the specific response
to the questions and the recommendations, I will call on
Tom Frangos and Pat Thropnickel from our department.
But the year that has elapsed since this
Conference last met has been an eventful one in Wisconsin
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L. P. Voigt
and I thought you might be interested in some of the
happenings that have a direct bearing on this particular
Conference and on clean water and a quality environment.
With the dedication of our Governor Knowles, our National
Resources Board, and particularly our dedicated departmen
I think we have made progress and I would like to call
your attention to it.
One of the things that has been a point
of marked interest was the creation of our Wisconsin
Department of Natural Resources. This Department was
ordered by the 196? Legislature, known as the Kellett
Law, Chapter 75, Wisconsin Laws of 1967. It created a
uniform department, including the pollution activities
of the former Department of Resource Development and
the resource management functions of the former Con-
servation Department with which I was associated.
Although this was accomplished only last
July 1st, the advantages are becoming more apparent
every week. For example, we now have fish management
researchers helping field engineers pin down the point
source of the dieldrin problem, we have conservation
wardens being backed up by sanitary engineers in
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L. P. Voigt
gathering fish kill evidence and we also have our
people from all the departments, the scientists working
on water diversion cases and other things of concern for
the total environment. The benefits add up to a greatly
improved program support and management service to which
this enlarged department can contribute.
Speaking on several of the other points
that might be of interest that aren't related to the
specific recommendations, I would like to mention the
subject of pesticide pollution. One of the significant
findings of the Conferees when they last met was that
pesticides, particularly the persistent hydrocarbons,
are a form of interstate pollution. Our department has
long had a concern in this area, so much so that several
years ago I banned the use of DDT on all our department-
controlled and -managed lands and stepped up reserach on
the impact of pesticides on the aquatic environment.
These studies included two reports which we issued in
the last six months and they have done much to promote
an understanding of the cumulative effect of our pesti-
cides on fish and the birds and animals which feed on
them.
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L. P. Voigt
On last July 31st our Board Chairman and
myself .joined in signing a ,-foint statement of agreement
with all the Lake Michigan Basin States directed at the
development of a common policy for the protection of the
lake from economic poisons.
Speaking to the point of the implementa-
tion of water quality standards, our Wisconsin interstate
standards were approved by the Secretary of the Interior
a little over a year ago. Since that time we have
extended these standards to all of our intrastate waters.
These standards generally require secondary treatment
of sanitary sewage and the equivalent in the treatment
of industrial wastes. And it now is our policy on a
Statewide basis to require year-round disinfection of
effluent.
In implementing these standards, our
department issued 266 pollution abatement orders in 1968,
including 150 in the Lake Michigan drainage basin. We
also conducted several drainage basin surveys during the
year, five of them on the Oconto, Peshtigo, Manitowoc,
Menominee and Milwaukee Rivers within the lake basin.
The followups on consultation and
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L. P. Voigt
inspection by our field engineers have been intensified
in this year's period.
In the field of certification of opera-
tors, on January 1, 19^9^ our Wisconsin law became
effective which requires that municipal and industrial
waste treatment plants employ certified operators. To
accomplish this, an intensive Statewide training program
was setablished by the department during 1968 to give
every potential operator an opportunity to qualify for
certification. The response and success of the exami-
nations were most gratifying to the department.
In the related field of shore land and
flood plain zoning, one of the basic features of our
basic law, the Wisconsin Water Resources Act, was the
requirement that counties zone all shore lands in unin-
corporated areas to protect against unwise development.
All of our counties have initiated steps to comply with
this section of our statutes, and a dozen counties now
have had their zoning, sanitary code and subdivision
regulations fully approved by our department.
In the field of solid waste disposal,
location and operation of dumps and sanitary landfills
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L. P. Voigt
have a direct impact on water quality. In a half a
dozen cases the department has issued orders directing
municipalities to abandon sites subject to periodic
flooding. Under a new State law, our department has
drafted Solid Waste Disposal Standards which, when
approved by the Natural Resources Board, will regulate
the location and operation of disposal sites through a
required State licensing procedure. Sites must be
selected which by natural or by sealing minimize leaching
to either ground or surface waters.
With regard to research, in cooperation wi
State universities, research into water resource programs
is being pushed on several fronts. Subject areas include
pesticides, nutrient removal techniques, coliform bac-
teria, spent sulfite liquors, aquatic nuisance control,
and adaptation of computers to flood plain delineation.
It might be of interest to note that we have contracted
for a mathematical model of the Fox River. Outside of
the department, Wisconsin research projects include
joint municipal-industrial waste treatment, application
of reverse osmosis techniques to the pulp and paper
industry, and the use of holding tanks or basins to
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L. P. Voigt
minimize the by-passing which can occur in combined sewer
systems.
In the field of financial assistance,
things are improving in Wisconsin too, and although our
construction is at an all-time high in Wisconsin, we,as
many other States, are awaiting promised Federal and
State funds. The underfunding of the Federal grant
program, coupled with an increase in grant eligibility
to 50 percent of project cost, would enforce the cutback
in our construction pace.
As a suggested remedy, our Governor
established an Outdoor Recreation Act Program Task Force,
which recommended a .joint recreational bonding and
pollution abatement bonding program which we hope will
come up for referendum in our State on April 1st. If
this advisory referendum is adopted, the Legislature woulc
have this advisory guidance to authorize our department
by a bill, which has also been drafted, to provide for
direct State grants and Federal aid advance payments to
municipalities, guaranteeing at least 55 percent of the
capital cost on these approved projects. We estimate
that this program, if it passes, would stimulate at least
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L. P. Voigt
280 million dollars in pollution abatement construction
in the next 10 years.
Now, this is ,just an overview of our
efforts in environmental protection, particularly those
that have specific reference to the Lake Michigan Basin.
I am going to call on Tom Frangos to make the specific
response on our progress under the recommendations of
the Conference.
(The following is the document submitted
by Mr. Voigt:)
WISCONSIN DEPARTMENT OF NATURAL RESOURCES
STATEMENT OF SECRETARY L. P. VOIGT
LAKE MICHIGAN ENFORCEMENT CONFERENCE
SECOND SESSION - FEBRUARY 25, 1969
A year'has elapsed since the initial
sessions of the Lake Michigan Enforcement Conference.
It has been an eventful year and, in many ways, a fruit-
ful one. While the potential threat to the quality of
Lake Michigan has not greatly diminished, awareness of
that threat has been intensified. The progress reports
and action plans under review here give us cause for at
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L. P. Voigt
least cautious optimism.
Many of the things which have occurred in
Wisconsin this past year bear on the future of Lake Michi
gan as well as the other vast water resources of our
State. They reflect the dedication of Governor Knowles,
the Wisconsin Natural Resources Board, and the staff of
our Department to the total cause of clean waters and a
quality environment.
To the extent that they have a bearing on
these proceedings, I would like to summarize these achiev
ments :
1. Creation of the Wisconsin Department
of Natural Resources
Reorganization of all State agencies was
ordered by the 196? Wisconsin Legislature. This was
aimed at creating a more efficient and responsible State
government, and at strengthening such programs as the
protection of Wisconsin's natural resources.
To this end, the pollution enforcement
activities of the former Department of Resource Develop-
ment were merged with the resource management functions
of the former Conservation Department. Although this was
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L. P. Voigt
accomplished only last July 1, the advantages are becom-
ing more apparent each week. Fish management researchers
have helped field engineers pin down the point source of
a dieldrin problem; conservation wardens have been backed
up by sanitary engineers in gathering fish-kill evidence;
ecological concepts involved in water diversion cases are
subject to earlier consideration.
The benefits include the program support
and management services which an enlarged department can
also supply.
2. Pesticide Pollution
One of the significant findings of the
Conferees was that pesticides, particularly the persisten
hydrocarbons, are a form of interstate pollution. Our
Department has long had a concern in this area. It led
us to ban the use of DDT on all Department-controlled
lands, and to step up reserach on the impact of pesticide
on the aquatic environment. These studies, including two
reports issued in the past six months, have done much to
promote an understanding of the cumulative effect of
"hard" pesticides on fish and the birds and animals which
feed on them.
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L. P. Voigt
Last July 31 our Board Chairman and I
joined in signing a "Joint Statement of Agreement by
Lake Michigan Basin States" directed at developing a
common policy for protection of the lake from economic
poisons.
3• Imp1emen t a t i o n o f_ Wate r Qua1 it y Stan-
dards
Wisconsin's Interstate Water Quality
Standards were approved by the Secretary of the Interior
a little over a year ago. Since that time, we have
applied the same standards to all intrastate waters.
These standards generally require secon-
dary treatment of sanitary sewage and the equivalent in
treatment of industrial wastes. It is now our policy,
Statewide, to require year-round disinfection of effluent
In implementing these standards, the
Department issued 266 pollution abatement orders in 19^8,
including 150 in the Lake Michigan drainage basin. Seven
drainage basin surveys were conducted during the year,
five of them on the Oconto, Peshtigo, Manitowoc, Menomine^
and Milwaukee Rivers within the lake basin.
Follow-through efforts, including
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L. P. Voigt
consultation and inspection by field engineers, have
been intensified.
4. Certification of Operators
As of January 1, 19^9* Wisconsin law
requires that municipal and industrial waste treatment
plants employ certified operators. An intensive State-
wide training program was established by the Department
during 1968 to give every potential operator an oppor-
tunity to qualify for certification. The response and
the ratio of success on the examinations were gratifying
5. Shoreland and Flood Plain Zoning
A basic feature of the Wisconsin Water
Resources Act was the requirement that counties zone
all shorelands in unincorporated areas to protect
against unwise development. All counties have initiated
steps to comply with this section of the statutes, and
a dozen of them have had their zoning, sanitary code and
subdivision regulations fully approved by our Department
^• Solid Waste Disposal
Location and operation of dumps and sani-
tary landfills can have a direct impact on water quality
In a half-dozen cases, the Department has issued orders
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L. P. Voigt
directing municipalities to abandon sites subject to
periodic flooding. Under a new State law, our Department
has drafted Solid Waste Disposal Standards which, when
approved by the Natural Resources Board, will regulate
the location and operation of disposal sites through a
State licensing procedure. Sites must be selected which
naturally, or through sealing, minimize leaching to
either ground or surface waters.
7' Research
In cooperation with State universities,
research into water resource programs is being pushed on
several fronts. Subject areas include pesticides,
nutrient removal techniques, coliform bacteria, spent
sulfite liquors, aquatic nuisance control, and adapta-
tion of computers to flood plain delineation. We have
also contracted for a mathematical model of the Fox River
Outside of the Department, Wisconsin research projects
include .-Joint municipal-industrial waste treatment,
application of reverse osmosis techniques to the pulp
and paper industry, and use of holding tanks or basins
to minimize the by-passing which can occur in combined
sewer systems.
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L. P. Voigt
. 8 . Financial As
Although the construction of municipal
sewage treatment facilities is at an all-time high in
Wisconsin, many projects are awaiting promised Federal
and State funds. Underfunding of the Federal grant
program, coupled with an increase in grant eligibility
to 50 percent of project cost, could force a cutback in
this construction pace.
To overcome this, the Governor's ORAP
Task Force has attached a pollution abatement bonding
program to a pending recreational bonding measure. If
adopted by the Legislature, this would enable our Depart-
ment to provide direct State grants and Federal fund
advances to Wisconsin municipalities, guaranteeing at
least 55 percent of the capital cost of these vital
projects. This program could stimulate at least $280
million in pollution abatement construction in the next
10 years .
This is at best a partial catalogue of
Wisconsin's current efforts in environmental protection,
but it serves to illustrate the sincerity with which we
approach this challenge.
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L. P. Voigt
MR. VOIGT: I would like to add my personapL
thanks for being invited here as a Conferee. It is my
first time and I am greatly impressed, Chairman Stein,
and I think I will enjoy working with this group.
I also would like to add the invitation
that perhaps at one of our resumed sessions you would
accept the invitation of the State of Wisconsin to hold
one of your resumed sessions in either Madison or Mil-
waukee, because we would like to have you come.
Thank you very much.
MR. STEIN: Thank you.
Why don't you wait there. Milwaukee is
in the basin. I am not sure, Madison isn't. We might
be there.
Are there any questions or comments?
Let me make this one. I am really very
gratified by your statement. You had a couple of points
there. One of these is the first I have heard from a
State. Now, listen to this. Mr. Voigt said:
"Although the construction of municipal
sewage treatment facilities is at an all-time high in
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L. P. Voigt
Wisconsin"--
MR. VOIGT: That is right.
MR. STEIN: And I welcome that, because
we have heard expressions that the grant program in the
past has held it back in Wisconsin. I have never seen
that. But--
MR. VOIGT: This is a case of us rolling
up our sleeves and getting to work.
MR. STEIN: Sure, I know.
MR. VOIGT: We don't like the Federal
underfunding, don't misconstrue the statement to mean
that.
MR. STEIN: I am not. I am just reading
this. You say it is at an all-time high, and I love it.
You say, "many projects are awaiting
promised Federal and State funds." This is the first Sta|fce
I hfcve ever heard say that, "Federal and State funds."
Generally they drop that "State" out and they just say
"promised Federal funds."
(Laughter.)
MR. VOIGT: We are willing to pull our
share of the load.
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L. P. Voigt
MR. STEIN: I know, but you are the first
one who ever said it in a Conference. (Laughter.) Bless
you.
Now I have a question, and this is for
clarification. On your point 2, on pesticide pollution,
you talked about directing a common policy for the pro-
tection of the lake from economic poisons. I am intereste
in that adjective. What do you mean by economic poisons?
MR. VOIGT: We are thinking of any poisons
that are used commercially.
MR. STEIN: You know, I don't want to take
the name of my namesake in vain, but it seems to me a
poison is a poison is a poison. What is this economic
poison?
(Laughter.)
MR. VOIGT: We are thinking of commercial
applications, is what we are referring 1:0 there.
MR. STEIN: Right.
MR. VOIGT: Perhaps the term is a misnomer
but I hope that clarifies it for you.
MR. STEIN: Right. Thank you, it does.
MR. VOIGT: Tom, do you want to lead off?
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T. Frangos
STATEMENT BY THOMAS G. FRANCOS
DIRECTOR, BUREAU OF WATER RESOURCES
WISCONSIN DEPARTMENT OF NATURAL RESOURCES
MADISON, WISCONSIN
MR. FRANGOS: Mr. Chairman, fellow Con-
ferees, ladies and gentlemen.
One of the things that we in Wisconsin
never totally get used to is the fact that whenever we
appear at one of these interstate programs with other
States we always end up being the last one on the roster,
unless we happen to be participating with the State of
Wyoming, and that doesn't happen too often. So much of
what you heard we will be repeating here in our presen-
tation, and I will ask your indulgence and we will try
to go through this as rapidly as possible.
The following is a summary report that
outlines the response of the Wisconsin Department of
Natural Resources to the recommendations of the first
session of the Lake Michigan Enforcement Conference and
details actions that have been taken in Wisconsin to
achieve compliance with the several recommendations.
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T. Frangos
This report is deliberately brief so that the Conference
may proceed with the business before the second session.
However, we felt that it would be useful to expand on
some of the materials previously submitted to the Con-
ference and to summarize the status of the Wisconsin
abatement program. Additionally, we have several pro-
posals to make to the Conference in the nature of clari-
fication of the interpretation of several of the
recommendations of the first session of the Conference.
The following comments have been itemized
to correspond with the recommendation numbers as they
appear in the Summary of Conference (first session).
Recommendation #1 - General Waste Treatment Requirements
The interstate water quality standards for
Lake Michigan that have been established and approved by
the Secretary of Interior provide for secondary treatment
for all municipal wastes. Implementation of this require-
ment will be substantially accomplished by December 1972.
The requirement that "...waste treatment
is to be provided by all municipalities to achieve at
least 80 percent reduction of total phosphorus..." if
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T. Prangos
literally interpreted and applied is particularly
inflexible and has produced administrative problems,
especially with our smaller communities. Upon review
of the Wisconsin phosphorus contribution from municipal
sources, it seems to us that the objectives of this
recommendation could better be met by accounting for
the total phosphorus load to the drainage basin against
which a reduction of 80 percent could be made. An
analysis of population distribution of communities
within the Wisconsin portion of the Lake Michigan
drainage basin shows that 11 out of 177 listed municipal
sources account for 83 percent of the population in the
basin. A total of 15 communities account for almost
86 percent of the population while 33 communities account
for 92 percent of the population. There follows a table
which indicates the population distribution.
In arriving at conclusions as to the
application of phosphorus removal requirements, the
following items were seriously and extensively reviewed
and considered:
1. A review of research activities and
information available from other investigations over the
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T. Frangos
past twelve months leads us to conclude that it is very
likely that phosphrous removals considerably in excess
of 80 percent can be achieved at large, well operated
sewage treatment plants. On the other hand, it is
unrealistic to expect to obtain this same kind of closely
supervised operation that present technology requires
for high efficiencies of smaller facilities.
2. Recent surveys of sewage treatment
plant operations throughout the State indicate that, on
an average, phosphorus reductions obtained by conventional.
treatment plants appear to be in the 20-40 percent range.
3. The Wisconsin Department of Natural
Resources is presently considering the issuance of a
Statewide policy to cover phosphate removal at municipal
treatment plants. This policy would take into account
eutrophication problems on our inland waters. The curren
proposal would require phosphorus removal at those facili-
ties where the receiving water body has severe problems
of overfertilization. It is hoped that the newly proposed
algal growth potential test presently being developed by
the Joint Industry-Government Task Force will provide all
regulatory agencies with a tool that will permit assessme
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T. Frangos
of benefits that can be achieved by reducing phosphorus
contributions from point source discharges. As the policy
requirements are implemented, it can be expected that a
number of smaller communities will need to remove phos-
phorus .
In view of the population distribution in
Wisconsin and in light of the various factors presently
at work as described above, it is suggested that the
Conference consider and adopt an approach that considers
phosphorus reduction requirements against the total
phosphorus load in each State that is tributary to Lake
Michigan. This approach would be comparable to that taker
in the Lake Erie Enforcement Conference.
If this approach is acceptable to the
Conference, the phosphorus reduction requirement will be
applied to all Wisconsin municipalities with a population
of 5,000 or greater. There is a listing of these munici-
palities in Attachment A. In consideration of removals
achieved at these 33 communities, reductions obtained at
conventional treatment plants in smaller communities and
the application of a general Statewide policy, it is felt
that the Wisconsin phosphorus reduction will substantially
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T. Frangos
meet the objectives of the Enforcement Conference by
December 1972.
And I might add that we came to this
recommendation without consultation with our friends in
Indiana and we were glad to see that they were suggest-
ing something along this line today.
Recommendations Nos. 2 and 8 deal with
industrial wastes. I think the statement speaks for
itself and I will not read that.
Recommendation No. 3, abatement schedules.
In accordance with the recommendations
of the Lake Michigan Enforcement Conference, Wisconsin's
Division of Environmental Protection has prepared and
submitted to all Conferees two lists of municipalities
and industries discharging wastewater to the Lake Michi-
gan Basin. The first listed the 436 potential waste
sources within the basin. The second listed the 111
waste sources within the basin which in our .judgment
have an effect upon Lake Michigan water quality. The
following information was given for each waste source:
Location of the facility by river basin and receiving
stream, type of waste, flow, population served, existing
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T. Frangos
treatment, required additional treatment, and the
estimated date of completion for additional requirements
It should be noted that the list does not
specifically comment on needs for controlling pollution
from combined sources. This is a blanket requirement for
all communities where this problem exists in accordance
with Recommendation No. 7. This information can be sup-
plied through the Conferees.
The listing of phosphorus removal require-
ments was made on the basis of "all" municipalities. The
schedule will need to be amended on the basis of accept-
ance by the Conferees of the proposed approach for
reducing phosphorus discharge in the Lake Michigan drainajge
basin.
Attachment B to this report contains a
summary of the status of industrial waste sources in the
basin with a brief discussion of progress. It also con-
tains errata that should be incorporated into the history
of Wisconsin wastewater sources in Lake Michigan drainage
basin affecting Lake Michigan water quality.
Subsequent to receipt of the Summary of
Conference, the Wisconsin Department of Natural Resource:
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389
T. Frangos
issued orders and letters to all municipalities citing
the need for compliance with State water quality standards
and the Enforcement Conference recommendations. Orders
were issued in those instances where public hearings had
been conducted immediately following the convening of th<
Lake Michigan Conference. Letters were sent to those
dischargers located in sub-basins for which public hear-
ings had not been held. On the basis of drainage basin
surveys conducted this past year, public hearings will
be conducted in the next few months in much of the area
in the Lake Michigan Basin. Orders issued subsequent to
those hearings will legally reinforce requirements now
covered by letter issued by the Department.
Because of the interest previously express
at the first session over poor water quality conditions
of the Pox River between Lake Winnebago and Green Bay, a
brief discussion of actions under w»y is presented at
this point. This area was the subject of a public hear-
ing some 11 months ago and orders were issued against
all municipalities and industries that are required to
meet State water quality standards and the applicability
requirements of the Lake Michigan Enforcement Conference.
ed
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T. Frangos
Treatment facilities to meet water quality standards that
relate to dissolved oxygen, suspended solids and phos-
phorus removal are to be substantially accomplished by
December 1972.
Because of the complex water quality prob-
lems in this portion of the Pox River, a number of steps
have been taken by municipalities and industries and the
Department, all of which are in accord with several of
the Lake Michigan Enforcement Conference recommendations.
Four pulp and paper industries and the
city of Green Bay have been undertaking a research investji-
gation (partially funded by the Federal Water Pollution
Control Administration) to determine the feasibility of
joint municipal industrial treatment facilities. Results
to date appear promising. A decision by those involved
with the research as to whether to proceed to a joint
treatment facility is expected by January 1970.
Some 15 industries and several municipali-
ties at the southern end of the Fox River are cooperating
in a joint study undertaken by the Fox Valley Council of
Governments to determine the feasibility of a joint
sewage system at that area of the river. This study
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T. Frangos
is sponsored, in part, by the Department of Housing and
Urban Development. A decision on whether to proceed on
this proposal is expected by January 1970.
Because of the intensive use of the Fox
River, the water quality conditions are complex. In
order to more accurately predict river response to
anticipated reductions in waste loadings and to assist
the Department in administering its water pollution
control program, the Department has contracted with a
consultant engineering firm to develop a mathematical
water quality model of the Fox River. It is expected
that the availability of a predictive tool will enable
the Department to more precisely assess water quality
conditions and to more firmly establish treatment require
ments. It should be noted that much of the basic data
that is required to develop a mathematical model was
provided by the Federal Water Pollution Control Adminis-
tration as a result of field surveys it had conducted
several years ago. The model will be available to the
Department by July 1, 1969.
Although timing of the several activities
now under nay is critical, it is still anticipated that
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T. Frangos
required facilities will be constructed and operating
by December 1972. In the meantime, the orders issued
by the Department require that industries and municipal!'
ties proceed immediately with whatever work can be
accomplished without prejudice, pending decisions on
the studies described above.
Recommendation #4 - Municipal Waste Disinfection
Wisconsin has accepted the Lake Michigan
Enforcement Conference recommendation concerning con-
tinuous disinfection for all municipal treatment plant
effluents. It is Statewide policy that throughout the
year all municipal treatment plants must provide con-
tinuous disinfection. All municipal sources within the
Lake Michigan Basin which do not provide continuous dis-
infection have received either orders or letters requir-
ing preliminary reports and tine schedules for the
installation or operation of facilities "by May 1969.
Although most of the larger communities
will be in compliance with the chlorination deadline,
several plants will not have plans approved or facilities
installed by May 19&9. Additionally, we need to report
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T. Frangos
that the Milwaukee Metropolitan Sewage Commission pro-
vides chlorination at its new South Shore Plant. However
it will not be providing these facilities at the Jones
Island Plant by May 1969. We have a commitment from the
Commission to install chlorination facilities and we are
presently negotiating a time schedule.
Recommendations Nos. 5 and 14 cover area-
wide sewerage systems, and I think the comments there
speak for themselves. I will point out that in the
Milwaukee metropolitan area, the Southeastern Wisconsin Regional
Planning Commission has received a grant, again from the
FWPCA, to develop a detailed water quality management
program for the Milwaukee River watershed. An important
element of this study will be the development of alterna-
tive institutional arrangements for water quality manage-
ment .
Concurrently, SEWRPC has also initiated
a study to determine the feasibility of developing an
areawide sewerage system for the highly urbanized seven-
county area in the southeast part of the State.
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T. Frangos
Recommendation #6 - Bypassing
The major combined sewer systems in
Wisconsin have been designed and built with suitable
overflow structures which insure the full utilization
of the capacity of the intercepting sewers. Action
is being taken to minimize bypassing whenever possible.
All orders issued by the Department contain requirements
for reducing bypassing from combined sewers or where
"clear water"problems exist. Flow regulating devices
may be effective in an overall program of reducing pol-
lution from combined wastes.
Recommendation #1 - Combined Sewers
Combined sewered areas are beine sepa-
rated in relation to urban renewal projects and whenever
reconstruction projects permit such separation. No new
combined sewers are being installed; however, structural'
ly unsound existing combined seweis are being replaced
in limited instances when it is not possible to separate
the tributary sewers.
Techniques for-handling combined sewage
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T. Frangos
other than separation are being investigated. Federal
demonstration grants have been obtained by the cities of
Chippewa Falls and Milwaukee to investigate such tech-
niques. Chippev/a Falls, which is not in the basin, is
discharging high stormwater flow to a holding pond where
the sewage will be stored until the flow subsides suf-
ficiently to allow the pond contents to be directed to
the treatment facility. The city of Milwaukee is
installing a tank which will also store combined sewage
for pumping to the interceptor sewers when the high flow
subsides. This facility will be provided with chlori-
nation equipment to allow primary sedimentation and dis-
infection of the combined sewage flow prior to discharge
to the river when the flow exceeds the capacity of the
tank. Provisions are made in both demonstration projects
to provide records of flow volumes and treatment provided
Recommendation #9 ~ Disinfection of Industrial Wastes
We are in agreement with the recommendatio
that continuous disinfection be provided for industrial
effluents containing pathogens which may have a dele-
terious effect on persons coming into contact with Lake
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T. Frangos
Michigan waters. However, we are not aware at this
time of any industry in Wisconsin to which this recom-
mendation now applies.
Recommendation No. 10. This relates to
nuclear discharges and thermal pollution. I will defer
any comments until we see that report.
Recommendation #11 - Dredging
The dumping of polluted material into
any water of the State is prohibited by sections
29.288 of the Wisconsin Statutes. The Corps of
Engineers and FWPGA in a joint news release of
January 6, 19&9, announced that their agencies had
work well under way on a cooperative pilot study of
dredge spoil disposal methods and had reached an
agreement on an interim disposal program. And we
have participated with the Corps of Engineers in
some of their preliminary meetings with our communi-
ties in Wisconsin.
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T. Frangos
Recommendation No. 12 covers the alewife
project of last summer.
Each of the four States contributed
$62,500^which was matched by $250,000 of Federal funds,
to cope with the anticipated alewife die-off problem.
Skimming operations in Wisconsin were out of Milwaukee
and Racine-Kenosha. Two employees of the Department
were assigned to observe these operations, make beach
checks and supervise the disposal of the alewives. The
municipalities involved agreed to provide dock facili-
ties and to transport and dispose of the alewives.
Although the alewives didn't cooperate and the die-off
did not occur, experience gained should place the par-
ticipants in a better position to handle the problem
should the condition again develop.
Recommendation #13 - Watercraft Pollution
In accordance with proposals agreed upon
by representatives of the Conferees, a bill has been
prepared for introduction in the current session of
the Wisconsin Legislature. This bill will require
holding tanks or incineration facilities on all boats
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equipped with toilets and operating on inland or out-
lying waters of the State. This covers all waters
within the jurisdiction of the State. All residue from
onboard facilities is to be disposed of at shore instal-
lations. The Statute will apply to all boats, including
commercial vessels on interstate waters, until Federal
statutes are applied. A copy of the proposed bill that
is endorsed by the Department and the Wisconsin Natural
Resources Council of State Agencies is Attachment C.
Recommendation #15 - Pesticides
A staff member participated in preparing
the "Report on Insecticides in Lake Michigan." This
report was submitted to the Conferees on November 18,
1968. In accordance with the committee recommendation
a bill has been introduced in the State Legislature
under the sponsorship of the Natural Resources Council
of State Agencies to more stringently regulate applica-
tion of pesticides and insecticides. A copy of the
bill is Attachment D.
The Department has before it a request
for a ruling to ban the use of DDT in the State where
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T. Prangos
such-use c6ntW.bu.ies to water pollution and violates State
water quality standards. Since this matter is presently
in the public hearing stage, we will, of course, have to
limit comment on those proceedings.
It should further be noted that two bills
have been introduced in the State Legislature at this
session to completely ban the use of DDT.
Recommendation No. 16 relates to agri-
cultural pollution. ¥e will pass on that until we hear
the report from the USDA.
Recommendation #1? - Water Quality Monitoring
A staff member participated in the develop
ment of the report, "Water Quality Monitoring Program
for Lake Michigan and Tributary Basin." This report was
dated November 15, 1968, and submitted to the Conferees
on January 16, 1969. The Department is in substantial
agreement with the report that has been received and
supports the recommendation therein.
In response to Recommendation No. Ib,
field personnel of the Department inventoried all sites
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where potential exists for a major spill of oils and
other hazardous materials which might affect the water
quality of Lake Michigan. The listing, together with
suggested corrective measures and maps showing the sites,
was sent to the other Conferees on September 18, 1968.
Recent events off the California coast would dictate
that an intensive oil pollution control and protection
program be developed by all governmental agencies con-
cerned.
Recommendation #19 - Water Quality Analyses
It has been recommended that water from
the filtration plants at Milwaukee and Green Bay be
analyzed for a broad spectrum of water quality parameters
including planktonic algae.
The Milwaukee intake at Texas Avenue has
been used since I960 as the sampling point for FWPCA
water quality surveillance systems. Samples are analyzed
every two we.eks for planktonic algae and weekly for chemi
cal parameters. The city of Milwaukee also analyzes
daily for bacteriological organisms, turbidity, pH and
alkalinity. The intake is located 7600 feet from shore
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at the south end of the harbor area and takes water from
a 40-foot depth.
The city of Green Bay water intakes are
located some 20 miles east of Green Bay, near Kewaunee.
One intake is located 6000 feet from the shore and takes
water from a 50-foot depth. A second intake, built in
1968, is 3000 feet in length and takes water from a 25-
foot depth. Water from these intakes is chlorinated at
the lift station which is near the shoreline. By the
time the water reaches the treatment plant, the water
has been effectively disinfected.
Because of the difficulty in obtaining
and transporting a representative sample from the Green
Bay intake, we believe the city of Two Rivers water
intake would be a better location for the water quality
analyses recommended by the Conferees. It is located
24 miles south of the Green Bay intakes, and has a length
of 6100 feet and takes water from a 31-foot depth. The
intake pipe goes directly into the filtration plant so
a sample can be obtained more easily and with a lesser
time lag. The Two Rivers plant analyzes daily for
alkalinity, pH, turbidity, and coliforms.
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While the Two Rivers plant has a certified
lab, it does not have the capability to take on extensive
analytical work. We believe that to obtain the best
information, the station should be included with Milwauke
in the FWPCA surveillance system as part of Federal
responsibility in the monitoring of Lake Michigan waters.
Examination of the data taken from the
Milwaukee intake sample analyses shows very little
change in most of the chemical data from week to week.
The plankton data varies considerably, but there is not
a large variation in species. Analysis of these samples
once monthly should provide satisfactory data. We ask
the Conferees to bear in mind that the water utilities ar
doing daily monitoring for operational purposes and we
as Conferees are primarily interested in long term trends
We are awaiting the report from the U. S.
Opast Guard concerning monitoring activities.
Recommendation No. 21, again on oil
pollution.
All significant controllable discharges
of oil to Wisconsin's lakefront areas have been elimi-
nated. The two manufacturers along the lake who have
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had oil disposal problems in the past have implemented
in-plant control and have instituted awareness programs.
One company is currently studying the flotation-incinera-
tion equipment previously referred to and the other has
submitted preliminary design proposals for further oil
loss control facilities.
One small, but particularly vexing, prob-
lem has arisen from winterizing practices on vessels that
berth in Lake Michigan harbors. In the late fall, these
vessels place considerable quantities of grease in plumb-
ing and piping to prevent damage from freezing. In the
spring, these lines are flushed out, usually by steam,
and the oils and grease are discharged directly to the
lake. Although the volumes are small, we believe that
isolated instances of oil washing on the shore result
from these practices.
We are presently pursuing this matter to
obtain better control and explore procedures to minimize
the quantities of oils and greases from those sources.
Any comments that the FWPCA or other Conferees may have
on this special problem would be appreciated.
Recommendation No. 22 covers some of the
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T. Frangos
special research that is being sponsored by the Depart-
ment. An attachment has been added to this report and I
won't discuss it at this time.
Recommendation No. 24 deals with construc-
tion grants. We recognize that the statement that follow
is perhaps out of the purview and legal responsibility of
the Conference, but we would like to at least make a poin
The State Conferees snould reiterate the
need for full appropriation of grant authorizations in
the Federal Water Pollution Control Act and should reques
a change in distribution formula so that States partici-
pating financially in construction projects will not have
their control programs adversely affected because fewer
projects can be commenced on the 50 percent grant basis
than on the 30 percent basis.
In conclusion, the Wisconsin concern for
water purity is best illustrated by Governor Knowles'
recent proposal for an Outdoor Resources Action Plan - 20
ORAP - 200 if endorsed by the citizens of Wisconsin and
enacted by the Legislature would establish a $200 million
bonding program--$144 million for construction of sewage
treatment facilities and $56 million for outdoor
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T. Frangos
recreational opportunities.
Under Wisconsin law, the bonding program
can "be enacted by the Legislature without a public
referendum. However, the present proposal is to submit
an advisory referendum to the electorate in April. If
the results are favorable, the next step would be for
the Legislature to enact the required legislation. The
program would become effective on July 1, 19^9* or soon
thereafter.
The proposed ten-year program would
accelerate the construction of badly needed pollution
control facilities by providing a direct, immediate
payment of a 25 percent share of State funds, a pre-
financing of one-half of the Federal share and appli-
cation of annual Federal grant funds to insure that local
communities would receive at least 55 percent of the
cost of eligible construction projects. If Federal
grant funds are adequate, additional grants would be
awarded to all projects to provide, over a ten-year
period, a 75 percent contribution of non-local funds
to the projects. Successful implementation of the pro-
posed Wisconsin ORAP-200 program would provide the
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T. Frangos
impetus to achieve the mutual goals and objectives of
these proceedings.
That concludes our report.
MR. STEIN: Mr. Frangos, without objection
your whole report will be included as if read.
MR. FRANGOS: Yes, please.
(The following are the documents submitted
by Mr. Frangos:)
WISCONSIN DEPARTMENT OF NATURAL- RESOURCES
SOME HELPFUL INFORMATION SO WE MAY REALIZE THE
INTERRELATION WITH AND THE DEPENDENCE
UPON...
OUR NATURAL RESOURCES
WISCONSIN DEPARTMENT OF NATURAL RESOURCES
Division of Environmental Protection
PROGRESS REPORT
LAKE MICHIGAN ENFORCEMENT CONFERENCE
(Second Session)
February 25, 19^9
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T. Frangos
The following is a summary report that
outlines the response of the Wisconsin Department of
Natural Resources to the recommendations of the first
session of the Lake Michigan Enforcement Conference and
details actions that have been taken in Wisconsin to
achieve compliance with the several recommendations.
This report is deliberately brief so that the Conference
may proceed with the business before the second session.
However, we felt that it would be useful to expand on
some of the materials previously submitted to the Con-
ference and to summarize the status of the Wisconsin
abatement program. Additionally, we have several pro-
posals to make to the Conference in the nature of
clarification of the interpretation of several of the
recommendations of the first session of the Conference.
The following comments have been itemized
to correspond with the recommendation numbers as they
appear in the Summary of Conference (first session).
Recommendation #1 - General Waste Treatment Requirements
The interstate water quality standards for
Lake Michigan that have been established and approved by
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T. Frangos
the Secretary of Interior provide for secondary treat-
ment for all municipal wastes. Implementation of this
requirement will be substantially accomplished by Decem-
ber 1972.
The requirement that "...waste treatment
is to be provided by all municipalities to achieve at
least 80 percent reduction of total phosphorus..." if
literally interpreted and applied is particularly
inflexible and has produced administrative problems.,
especially with our smaller communities. Upon review
of the Wisconsin phosphorus contribution from municipal
sources, it seems to us that the objectives of this
recommendation could better be met by accounting for
the total phosphorus load to the drainage basin against
which a reduction of 80 percent could be made. An
analysis of population distribution of communities within
the Wisconsin portion of the Lake Michigan drainage basin
shows that 11 out of 177 listed municipal sources account
for 83 percent of the population in the basin. A total
of 15 communities account for almost 86 percent of the
population while 33 communities account for 92 percent of
the population. Population distribution is illustrated
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T. Frangos
by the following table:
Cumulative Percent
No. of of
Size Sources Population
20,000 11 83.0
10,000 15 85.8
5,000 33 92.0
2,500 48 94-7
all 177 100.0
In arriving at conclusions as to the
application of phosphorus removal requirements, the
following items were seriously and extensively reviewed
and considered:
1. A review of research activities and
information available from other investigations over the
past twelve months leads us to conclude that it is very
likely that phosphorus removals considerably in excess
of 80 percent can be achieved at large, well operated
sewage treatment plants. On the other hand, it is
unrealistic to expect to obtain this same kind of closely
supervised operation that present technology requires
for high efficiencies of smaller facilities.
2. Recent surveys of sewage treatment
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T. Frangos
plant operations throughout the State indicate that, on
an average, phosphorus reductions obtained by conventiona
treatment plants appear to be in the 20-40 percent range.
3. The Wisconsin Department of Natural
Resources is presently considering the issuance of a
statewide policy to cover phosphate removal at municipal
treatment plants. This policy would take into account
eutrophication problems on our inland waters. The cur-
rent proposal would require phosphorus removal at those
facilities where the receiving water body has severe
problems of overfertilization. It is hoped that the
newly proposed algal growth potential test presently
being developed by the Joint Industry-Government Task
Force will provide all regulatory agencies with a tool
that will permit assessment of benefits that can be
achieved by reducing phosphorus contributions from point
source discharges. As the policy requirements are imple-
mented, it can be expected that a number of smaller
communities will need to remove phosphorus.
In view of the population distribution
in Wisconsin and in light of the various factors presentl
at work as described above, it is suggested that the
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T. Frangos
Conference consider and adopt an approach that considers
phosphorus reduction requirements against the total
phosphorus load in each State that is tributary to Lake
Michigan. This approach would be comparable to that
taken in the Lake Erie Enforcement Conference,
If this approach is acceptable to the
Conference, the phosphorus reduction requirement will
be applied to all Wisconsin municipalities with a popu-
lation of 5,000 or greater. (See Attachment A.) In
consideration of removals achieved at these 33 communities,
reductions obtained at conventional treatment plants in
smaller communities and the application of a general
Statewide policy, it is felt that the Wisconsin phosphorujs
reduction will substantially meet the objectives of the
Enforcement Conference by December 1972.
Recommendation #2, #Q - Industrial Wastes^
All industries located within the basin
shall meet requirements of the approved Wisconsin inter-
state water quality standards, as well as the intrastate
standards now in effect. Compliance by industries with
the established standards will prevent the degradation
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of water quality in Lake Michigan.
It has been the operating practice of the
Department of Natural Resources for many years to encourake
industries to discharge wastes that are amenable to treat
ment to municipal sewer systems when available. This
practice is presently being maintained.
Recommendation #3 - Abatement Schedules
In accordance with the recommendations of
the Lake Michigan Enforcement Conference, Wisconsin
Division of Environmental Protection has prepared ani
submitted to all Conferees two lists of municipalities
and industries discharging wastewater to the Lake Michi-
gan Basin. The first listed the 436 potential waste
sources within the basin. The second listed the 111
waste sources within the basin which in our .judgment
have an effect upon Lake Michigan water quality. The
following information was given for each waste source:
Location of the facility by river basin and receiving
stream, type of waste, flow (MGD), population served,
existing treatment, required additional treatment, and
the estimated date of completion for additional requirements
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T. Frangos
It should be noted that the list does
not specifically comment on needs for controlling pol-
lution from combined sources. This is a blanket require-
ment for all communities where this problem exists in
accordance with Recommendation #7. This information
can be supplied.
The listing of phosphorus removal require-
ments was made on the basis of "all" municipalities. The
schedule will need to be amended on the basis of acceptan
by the Conferees of the proposed approach for reducing
phosphorus discharge in the Lake Michigan drainage basin.
Attachment B to this report contains a
summary of the status of industrial waste sources in the
basin with a brief discussion of progress. It also con-
tains errata that should be incorporated into the history
of Wisconsin wastewater sources in Lake Michigan drainage
basin affecting Lake Michigan water quality.
Subsequent to receipt of the Summary of
Conference, the Wisconsin Department of Natural Resources
issued orders and letters to all municipalities citing
the need for compliance with State water quality standard
and the Enforcement Conference recommendations. Orders
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were issued in those instances where public hearings
had been conducted immediately following the convening of
the Lake Michigan Conference. Letters were sent to those
dischargers located in sub-basins for which public hear-
ings had not been held. On the basis of drainage basin
surveys conducted this past year, public hearings will
be conducted in the next few months in much of the area
in the Lake Michigan basin. Orders issued subsequent to
those hearings will legally reinforce requirements now
covered by letter issued by the Department.
Because of the interest previously
expressed at the first session over poor water quality
conditions of the Fox River between Lake Winnebago and
Green Bay, a brief discussion of actions under way is
presented at this point. This area was the subject of
a public hearing some 11 months ago and orders were
issued against all municipalities and industries that
are required to meet State water quality standards and
the applicability requirements of the Lake Michigan
Enforcement Conference. Treatment facilities to meet
water quality standards that relate to dissolved oxygen,
suspended solids and phosphorus removal are to be
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T. Frangos
substantially accomplished by December 1972.
Because of the complex water quality prob'
lems in this portion of the Fox River, a number of steps
have been taken by municipalities and industries and the
Department, all of which are in accord with several of
the Lake Michigan Enforcement Conference recommendations,
Four pulp and paper industries and the
city of Green Bay have been undertaking a research
investigation (partially funded by the Federal Water
Pollution Control Administration ) to determine the
feasibility of joint municipal industrial treatment
facilities. Results to date appear promising. A
decision by those involved with the research as to
whether to proceed to a .joint treatment facility is
expected by January 1970.
Some 15 industries and several munici-
palities at the southern end of the Fox River are
cooperating in a joint study undertaken by the Fox
Valley Council of Governments to determine the feas-
ibility of a joint sewage system at that area of the
river. This study is sponsored, in part, by the Depart-
ment of Housing and Urban Development. A decision on
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whether to proceed on this proposal is expected by
January 1970.
Because of the intensive use of the Fox
River, the water quality conditions are complex. In
order to more accurately predict river response to antici
pated reductions in waste loadings and to assist the
Department in administering its water pollution control
program, the Department has contracted with a consultant
engineering firm to develop a mathematical water quality
model of the Fox River. It is expected that the avail-
ability of a predictive tool will enable the Department
to more precisely assess water quality conditions and to
more firmly establish treatment requirements. It should
be noted that much of the basic data that is required to
develop a mathematical model was provided by the Federal
Water Pollution Control Administration as a result of
field surveys it had conducted several years ago. The
model will be available to the Department by July 1, 19^9
Although timing of the several activities
now under way is critical, it is still anticipated that
required facilities will be constructed and Derating by
December 1972. In the meantime, the orders issued by
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T. Frangos
the Department require that industries and municipalities
proceed immediately with whatever work can be accomplishe
without prejudice, pending decisions on the studies
described above.
Recommendation #4 - Municipal Waste Disinfection
Wisconsin has accepted the Lake Michigan
Enforcement Conference recommendation concerning con-
tinuous disinfection for all municipal treatment plant
effluents. It is Statewide policy that throughout the
year all municipal treatment plants must provide continue
disinfection. All municipal sources within the Lake
Michigan Basin which do not provide continuous disinfec-
tion have received either orders or letters requiring
preliminary reports and time schedules for the installa-
tion or operation of facilities by May 1969.
Recommendations #5 and #15 - Areawide Sewerage^_Sys_^ems_
For many years the State of Wisconsin has
promoted the installation of unified collection systems
and areawide sewage facilities. We have continued this
practice in agreement with recommendations #5 and #14
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T. Frangos
of the Lake Michigan Enforcement Conference.
It is also appropriate to comment on two
activities now under way in the Milwaukee metropolitan
area. The Southeastern Wisconsin Regional Planning
Commission (SEWRPC) has received a grant from the Federal
Water Pollution Control Administration to develop a de-
tailed water quality management program for the Milwaukee
River watershed. An important element of this study
will be the development of alternative institution arrang
ments for water quality management.
Concurrently,, SEWRPC has also initiated
a study to determine the feasibility of developing an
areawide sewerage system for the highly urbanized seven-
county area in the southeast part of the State.
R e c o mme nda t i on #6_-_Byp a s sing
The major combined sewerage systems in
Wisconsin have been designed and built with suitable
overflow structures which insure the full utilization
of the capacity of the intercepting sewers. Action is
being taken to minimize bypassing whenever possible.
All orders issued by the Department contain requirements
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for reducing bypassing from combined sewers or where
"clear water" problems exist. Flow regulating devices
may be effective in an overall program of reducing pol-
lution from combined wastes.
Recommendation #7 - Combined Sewers
Combined sewered areas are being separated
1 *• I
in relation to urban renewal projects and whenever re
construction projects permit such separation. No new
combined sewers are being installed; however, structurall
unsound existing combined sewers are being replaced in
limited instances when it is not possible to separate
the tributary sewers.
Techniques for handling combined sewage
other than separation are being investigated. Federal
demonstration grants have been obtained by the cities of
Chippewa Falls and Milwaukee to investigate such tech-
niques. Chippewa Falls is discharging high stormwater
flow to a holding pond where the sewage will be stored
until the flow subsides sufficiently to allow the pond
contents to be directed to the treatment facility. The
city of Milwaukee is installing a tank which will also
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T. Frangos
store combined sewage for pumping to the interceptor
sewers when the high flow subsides. This facility will
be provided with chlorination equipment to allow primary
sedimentation and disinfection of the combined sewage
flow prior to discharge to the river when the flow exceeds
the capacity of the tank. Provisions are made in both
demonstration projects to provide records of flow volume
and treatment provided.
Recommendation #9 ~ Disinfection -_ Industrial __Wastes
We are in agreement with the recommenda-
tion that continuous disinfection be provided for Indus'
trial effluents containing pathogens which may have a
deleterious effect on persons coming into contact with
Lake Michigan waters. However, we are not aware at
this time of any industry in Wisconsin to which this
recommendation now applies.
Recommendation #10 - Nuclear Discharges and Thermal
Pollution
A staff member participated in the
development of "Report of the Committee on Nuclear
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T. Prangos
Power Plant Waste Disposal to the Conferees of the
Lake Michigan Enforcement Conference." This report
was submitted to the Conferees on November 27, 1968.
Wisconsin is in substantial agreement with the recom-
mendations contained in that report.
Rec ommen dation £l!__ - Dre^dg_in.g_
The dumping of polluted material into
any waters of the State is prohibited by ss. 29.288 of
the Wisconsin Statutes. The Corps of Engineers and
FWPCA in a joint news release of January 6, 1969,
announced that their agencies had work well underway on
a cooperative pilot study of dredge spoil disposal methoc
and had reached an agreement on an interim disposal
program. In January, the Department participated in
meetings with the Corps of Engineers and local officials
at six of Wisconsin's Lake Michigan port cities. The
discussions involved dredging operations and disposal
areas.
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T. Frangos
Recommendation #12 - Alewives
Last summer, each of the four States
contributed $62,500 which was matched by $250,000 of
Federal funds to cope with the anticipated alewife
die-off problem. Skimming operations in Wisconsin
were out of Milwaukee and Racine-Kenosha. Two employees
of the Department were assigned to observe these opera-
tions, make beach checks and supervise the disposal of
the alewives. The municipalities involved agreed to
provide dock facilities and to transport and dispose of
the alewives. Although the die-off did not occur,
experience gained should place the participants in a
better position to handle the problem should the con-
dition again develop.
Recommendation #13 - Watercraft Pollution
In accordance with proposals agreed upon
by representatives of the Conferees, a bill has been
prepared for introduction in the current session of the
Wisconsin Legislature. This bill will require holding
tanks or incineration facilities on all boats equipped
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T. Frangos
with toilets and operating on inland or outlying waters
of the State. This covers all waters within the juris-
diction of the State. All residue from onboard facilitie
is to be disposed of at shore installations. The Statut
will apply to all boats, including commercial vessels
on interstate waters until Federal statutes are applied.
A copy of the proposed bill that is endorsed by the
Department and the Wisconsin Natural Resources Council
of State Agencies is Attachment C.
Recommendation #13 ~ Pesticides
A staff member participated in "Report
on Insecticides in Lake Michigan." This report was sub-
mitted to the Conferees on November 18, 1968. In
accordance with the committee recommendation a bill has
been introduced in the State Legislature under the spon-
sorship of the Natural Resources Council of State Agencies
to more stringently regulate application of pesticides
and insecticides. A copy of the bill is Attachment D.
The Department has before it a request
for a ruling to ban the use of DDT in the State where
such use contributes to water pollution and violates
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T. Frangos
State water quality standards. Since this matter is
presently in the public hearing stage, we will, of
course, have to limit comment on those proceedings.
It should 1'urther be noted that two bills
have been introduced in the State Legislature at this
session to completely ban the use of DDT.
Recommendation #16 - Agri cult_ura]L_Pollut_jLon_
Since most of the pollution and siltation
problems arising from agricultural practices are non-
point sources, and therefore more difficult; to control,
it appears that a broad, multifaceted program is require<
Education will be an important factor. We look forward
to receiving the comments of the U. S. Department ol
Agriculture.
Re_c_o_mme^nd,ation #17 - Water Quality Monitgjrinjr
A staff member participated in the
development of the report, "Water Quality Monitoring
Program for Lake Michigan and Tributary Basin." This
report was dated November 15, 1968> and submitted to
the Conferees on January 16, 1969. The Department is
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T. Frangos
in substantial agreement with the report that has been
received and supports the recommendation therein.
Recommendation #l8 - Oil Pollution
In response to recommendation #18, field
personnel of the Department inventoried all sites where
potential exists for a manor spill of oils and other
hazardous materials which might affect the water quality
of Lake Michigan. The listing, together with suggested
corrective measures and maps showing the sites, was sent
to the other Conferees on September 18, 1968. Recent
events off the California coast would dictate that an
intensive oil pollution control and protection program
be developed by all governmental agencies concerned.
Recommendation #19 - Wate r_Q_ua 1 j^ty_Anal_ys_e_s_
It has been recommended that water from
the filtration plants at Milwaukee and Green Bay be
analyzed for a broad spectrum of water quality parameters
including planktonic algae.
The Milwaukee intake at Texas Avenue has
been used since I960 as the sampling point for FWPCA
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T. Frangos
water quality surveillance systems. Samples are
analyzed every two weeks for planktonic algae and
weekly for chemical parameters. The city of Milwaukee
also analyzes daily for bacteriological organisms,
turbidity, pH, and alkalinity. The intake is located
7600 feet from shore at the south end of the harbor
area and takes water from a 40-foot depth.
The city of Green Bay water intakes are
located some 20 miles east of Green Bay, near Kewaunee.
One intake is located 6000 feet from the shore and takes
water from a 50-foot depth. A second intake, built in
1968, is 3000 feet in length and takes water from a 25-
foot depth. Water from these intakes is chlorinated at
the lift station which is near the shoreline. By the tim
the water reaches the treatment plant, the water has been
effectively disinfected.
Because of the difficulty in obtaining
and transporting a representative sample from the Green
Bay intake, we believe the city of Two Rivers water
intake would be a better location for the water quality
analyses recommended by the Conferees. It is located
24 miles south of the Green Bay intakes, and has a length
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T. Prangos
of 6100 feet and takes water from a 31-foot depth. The
intake pipe goes directly into the filtration plant so
a sample can be obtained more easily and with a lesser
time lag. The Two Rivers plant analyzes daily for
alkalinity, pH, turbidity, and coliforms.
While the Two Rivers plant has a certified
lab, it does not have the capability to take on extensive
analytical work. We believe that to obtain the best
information, the station should be included with Milwauke
in the FWPCA surveillance system as part of Federal
responsibility in the monitoring of Lake Michigan waters
Examination of the data taken from the
Milwaukee intake sample analyses shows very little
change in most of the chemical data from week to week.
The plankton data varies considerably, but there is not
a large variation in species. Analysis of these samples
once monthly should provide satisfactory data. Bear in
mind that the water utilities are doing daily monitoring
for operational purposes and we as Conferees are primaril
interested in long term trends.
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T. Frangos
Recommendation #20 - U. 5. Coast Guard Monitoring Activities
Report to be received.
Recommendation #21 - Oil Polluticm
All significant controllable discharges
of oil to Wisconsin lakefront areas have been eliminate^
The two manufacturers along the lake who have had oil
disposal problems in the past have implemented in-plant
control and have instituted awareness programs. One
company is currently studying the flotation-incineration
equipment previously referred to and the other has sub-
mitted preliminary design proposals for further oil loss
control facilities.
One small, but particularly vexing, proble
has arisen from winterizing practices on vessels that
berth in Lake Michigan harbors. In the late fall, these
vessels place considerable quantities of grease in plumb-
ing f.hd piping to prevent damage from freezing. In the
sprjpg, these lines are flushed out, usually by steam,
and the oils and grease are discharged directly to the
lake. Although the volumes are small, we believe that
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T. Frangos
isolated instances of oil washing on the shore result
from these practices.
We are presently pursuing this matter to
obtain better control and explore procedures to minimize
the quantities of oils and greases from those sources.
Any comments that the FWPCA or other Conferees may have
on this special problem would be appreciated.
Recommendation #2.2 - Research
We agree that there is a great need for
aggressive water pollution research and that we cannot
wait until all the answers are "in" before taking action
We must, however, avoid the pitfall of predicting or
suggesting program results in those areas where we have
so little knowledge of "cause" and "effect" relationship
The Wisconsin Legislature has provided
funds specifically for water resources research. During
the past two years some $1300,000 has been available to
the Department to conduct a broad water research program
The investigations sponsored or undertaken by the Divisi >n
of Environmental Protection span a wide range of water
supply and water pollution control problems. A summary
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430
T. Frangos
of projects undertaken by the Division appears in
Attachment E.
Recommendation #24 - Con.struction_G;rants_
The State Conferees should reiterate the
need for full appropriation of grant authorizations in
the Federal Water Pollution Control Act and should
request a change in distribution formula so that States
participating financially in construction projects will
not have their control programs adversely affected
because fewer projects can be commenced on the 50 percent
grant basis than on the 30 percent basis.
* * *
The Wisconsin concern for water purity is best
illustrated by Governor Knowles' recent proposal for
an Outdoor Resources Action Plan - 200. ORAP - 200 if
endorsed by the citizens of Wisconsin and enacted by
the Legislature would establish a $200 million bonding
program--$l44 million for construction of sewage treat-
ment facilities and $56 million for outdoor recreational
opportunities.
Under Wisconsin law, the bonding program
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431
T. Frangos
can be enacted by the Legislature without a public
referendum. However, the present proposal is to submit
an advisory referendum to the electorate in April. If
the results are favorable, the next step would be for
the Legislature to enact the required legislation. The
program would become effective on July 1, 19&9, or soon
thereafter.
The proposed ten-year program would
accelerate the construction of badly needed pollution
control facilities by providing a direct, immediate
payment of a 25 percent share of State funds, a pre-
financing of one-half of the Federal share and appli-
cation of annual Federal grant funds to insure that
local communities would receive at least 55 percent of
the cost of eligible construct:on projects. If Federal
grant funds are adequate, additional grants would be
awarded to all projects to provide, over a ten-year
period, a 75 percent contribution of non-local funds
to the projects. Successful implementation of the
proposed Wisconsin ORAP-200 program would provide the
impetus to achieve the mutual goals and obi'ectives of
these proceedings.
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432
T. Frangos
Attachment A.
LISTING OF MAJOR WISCONSIN MUNICIPALITIES
IN THE LAKE MICHIGAN BASIN
Population Between
3,000 and 10,000
Cedarburg, City
Franklin San. Dist.
Germantown, Vil.
Greendale, Vil.
Hales Corners, Vil
Kimberly, Vil.
Little Chute, Vil.
Menasha, Tn. San. Dist #4
Mequon, City
New London, City
Oak Creek, City
Plymouth, City
Portage, City
Port Washington, City
Ripon, City
Shawano, City
Population over 10,000
Appleton, City
De Pere, City
Green Bay Met. Sewer Dist
Kaukauna, City
Kenosha, City
Manitowoc, City
Menominee Falls, Vil.
Milw, Met. Sew. Comm.
(2 plants)
Neenah-Menasha, Cities
Oshkosh, City
Racine, City
Sheboygan, City
South Milwaukee, City
Two Rivers, City
West Bend, City
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433
T. Frangos
Population Between
5,000 and 10,000 (Cont'd.)
Shawano Lake San. Dist.
Sturgeon Bay, City
Attachment B
Status
Industrial Waste Sources
Lake Michigan Enforcement Conference
February 25, 19^9
The list titled "WisconsinJ.Vaste_Water
S_ou_r_c_e_s iR__^_h.e__Lake Mich i ga:n _Dr ain age .Ba_s_in__Af'f_e^tinj[
Lake Michigan Water Qualify" which was submitted in
November 1968 names 40 industry-owned outfalls as
potential sources of pollution affecting Lake Michigan.
Of those named, 14 are indicated as not affecting the
lake quality and as not requiring additional treatment.
One additional industry, the Kimberly-Clark Corporation
Lakeview Mill at Neenah, has recently placed in operatior
an industrial waste unit which may achieve an acceptable
level of treatment.
There was one omission from this listing.
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434
T. Frangos
The name of the U. S. Glue Division, Peter Cooper
Corporation, located at Oak Creek, should be added.
Negotiations between this company and the city of
Milwaukee Metropolitan Sewerage District are in progress
for connection to the metropolitan sewage collection
system.
There were four erroneous inclusions:
1. Oak Creek Power Plant (Wisconsin
Electric Power Company) which has a seepage lagoon in
addition to a secondary plant for its sewage treatment
and therefore there is no requirement for effluent dis-
infection by May of 1969.
2. Falls Paper and Power Company which
is now the Scott Paper Company, Oconto Falls, has
existing treatment consisting of primary clarification,
sludge centrifugation, evaporation and roadbinder haul-
ing in addition to the lagooning and savealls indicated.
3. Kimberly-Clark Corporation's mill at
Niagara on the Menominee River has discontinued all
chemical pulping and therefore does not create adverse
conditions in Lake Michigan. This mill has in progress
certain improvements which, when completed, are expected
-------
T. Prangos
to result in a significant reduction in suspended
solids discharged to the Menominee River.
4. Scott Paper Company at Marinette on
the Menominee River was incorrectly credited with primar
clarification, sludge centrifugation, evaporation and
ponding. Their existing treatment should be changed to
savealls3screens and roadbinder hauling.
Three of the forty listed industrial
sources convey inadequately treated sanitary sewage.
In two of these instances we have received responses
from the industries confirming their intent to connect
to municipal sewers.
Of the 21 industrial process waste
pollution sources not yet mentioned, 17 are on the Fox
River. All acknowledged orders or letters received from
this Department and have given their assurances that
they will meet the requirements of our existing State
water quality standards and the requirements of the Lake
Michigan Enforcement Conference. Those with the less
complex problems will probably accomplish this in
advance of December 1972.
Fifteen of the Fox River mills are
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436
T. Frangos
actively exploring connection of all or part of their
wastes to municipal sewer systems. Four of these are
already partially connected to city sanitary sewers. All
but those four are simultaneously considering methods of
separate treatment which can be employed if the municipal
sewer connections are ruled out.
Of the remaining four industries, three
have discharges presently going to Lake Michigan and one
is to the Pike River.
Preliminary engineering proposals have
been submitted for Departmental review by two of these
firms, and one of those proposals has already been
approved. A third company with a waste containing ions
potentially detrimental to aquatic life has submitted
results of bioassays of treated effluent similar to that
which they would release from proposed treatment units.
Once this Department determines the concentration limits
for those ions the company plans to proceed with prepara
tion of construction drawings.
The remaining corporation has in-plant
oil interception and reclamation equipment. It is also
studying flotation and incineration to improve control
techniques .
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437
T. Frangos
Attachment C
AN ACT*
To repeal and recreate 30.71 (2) of the
statutes relating to boat toilet regulations.
The people of the State of Wisconsin,
represented in senate and assembly do enact as follows:
30.71 (2) of the statutes is repealed and
recreated to read:
30.71 (2) No person shall operate any
boat equipped with toilets on any outlying waters of
this State, as defined in Sec. 29.01 (4), unless the
toilet wastes are retained for shore disposal by means
of facilities constructed and operated in accordance with
rules adopted by the department of health and social
services. This subsection shall not apply to boats
engaged in international or interstate commerce.
This act shall take effect on January 1,
1970.
12/16/68 .Is
* Proposed bill, has not as yet been introduced
in the Legislature.
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438
T. Frangos
Attachment C-l
STATE OF WISCONSIN / DEPARTMENT OF NATURAL RESOURCES
L. P. Voigt
Secretary
Box 450
Madison, Wisconsin 5:
30.71 WISCONSIN STATUTES
30.71 Boats equipped with toilets
(1) No person shall operate any boat equipped with
toilets on inland waters of this State, except
the Mississippi River, unless the toilet wastes
are retained for shore disposal by means of
facilities constructed and operated in accordance
with the rules adopted by the state board of
health. "inland waters" means the waters
defined as inland waters by s 29.01 (4).
(2) Until October 31, 1967, sub. (1) shall not apply
to the St. Croix River below Houlton-Stillwater.
701
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439
T. Prangos
Attachment D
1969 STATE OF WISCONSIN
LRB-980
1969 SENATE BILL 124 MRT:mjg:l
BC: :2
February 6, 1969 - Introduced by COMMITTEE ON
CONSERVATION, by request of Natural Resources
Council of State Agencies. Referred to Committee
on Conservation.
AN ACT to amend 29.60 (5) (c); to repeal
and recreate 29.29 (4); and to create 15.191 (2), 15.195,
94.69 (8), (9) and (10), 140.05 (15) and 140.77 of the
statutes, relating to the use of pesticides, creating
a pesticide review board, and granting rule-making power.
Analy^is by_th_e_ Legis 1 a^:Ly_e_Referericj? Bureau^
This proposal creates, in the department
of health and social services, a pesticide review board
to coordinate the pesticide control responsibilities of
all State agencies. The council consists of three member
the secretaries of natural resources, of agriculture,
and of health and social services; each secretary may,
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440
T. Prangos
however, designate somebody else to serve in his stead.
No rule regulating the use of pesticides
can enter into effect without the approval of the pesti-
cide review board.
The review board will be assisted in
obtaining scientific data, and in coordinating the
pesticide regulatory,enforcement, research and edu-
cational functions of the State, by a nine-member counci
on which, in addition to representatives of other govern
mental agencies or the general public, the departments
of agriculture, of health and social services, and of
natural resources, and the university of Wisconsin, will
be represented.
For further information, see the fiscal
note appended to this bill.
The people of the State of Wisconsin,
represented in senate and assembly, do enact as follows:
SECTION 1. 15.191 (2) of the statutes
is created to read:
15.191 (2) PESTICIDE REVIEW BOARD. The
pesticide review board shall have the program
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441
T. Frangos
responsibilities specified under ss. 29.29 (4), 94.69
(9) and 140.77.
SECTION 2. 15.195 of the statutes is
created to read:
15.195 SAME; ATTACHED BOARDS AND COMMISSIC
(1) PESTICIDE REVIEW BOARD. There is created in the
department of health and social services a pesticide
review board. The review board shall consist of the
secretary of agriculture, the secretary of health and
social services and the secretary of natural resources
or their designated representatives.
SECTION 3. 29.29 (4) of the statutes is
repealed and recreated to read:
29.29 (4) USE OF PESTICIDES. The depart-
ment of natural resources, after public hearing, may
adopt rules governing the use of any pesticide which it
finds is a serious hazard to wild animals, and the making
of reports thereon. In making such determinations, the
department to the extent relevant shall consider the neec
for pesticides to protect the well-being of the general
public. It shall obtain the recommendation of the pesti-
cide review board and such rules are not effective until
NS
-------
442
T. Prangos
approved by the pesticide review board. "Pesticide"
has the meaning designated in s. 9^.67 (1).
SECTION 4. 29.60 (5) (c) of the statutes
is amended to read:
29.60 (5) (c) Nothing in this chapter
shall prevent the department or its wardens from using
dynamite or having dynamite in possession near beaver
houses or dams for the purpose of removing beaver dams
when the beavers are causing damage to property owners.
SECTION 5. 94.69 (8), (9) and (10) of
the statutes are created to read:
94.69 (b) To govern the conditions under
which containers of pesticides may be transported, storec
or disposed of.
(9) To govern the use of pesticides,
including their formulations, and times and methods of
application and other conditions of use.
(10) No rule hereunder shall be adopted
unless the department determines that it is necessary fo
the protection of persons or property from serious pesti
cide hazards and that its enforcement is feasible and
will substantially eliminate or reduce such hazards.
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443
T. Frangos
In making such determination the department, to the
extent relevant, shall consider the toxicity, hazard,
effectiveness and public need for the pesticides, and
the availability of less toxic or less hazardous pesti-
cides or other means of pest control. It shall obtain
the recommendations of the pesticide review board and
such rules are not effective until approved by the pesti-
cide review board. Such rules shall not affect the
application of any other statute or rule adopted there-
under .
SECTION 6. 140.05 (15) of the statutes
is created to read:
140.05 (15) Where the use of any pesticide
results in a threat to the public health, the department
of health and social services may take all measures
necessary to prevent morbidity or mortality.
SECTION 7. 140.77 of the statutes is
created to read:
140.77 PESTICIDE REVIEW BOARD. (1) The
pesticide review board created by s. 15.195 shall collect
analyze and interpret information, and make recommendatic
to and coordinate the regulatory and informational
ns
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444
T. Frangos
responsibilities of the State agencies, on matters
relating to the use of pesticides, particularly recom-
mendations for limiting pesticide use to those materials
and amounts thereof found necessary and effective in
the control of pests and which provide the least potential
hazard to man, animals or plants. Pesticide rules
authorized "by ss. 29.29 (4) and 94.69 are not effective
until approved by the review board.
(2) The pesticide review board shall
appoint a council not to exceed nine members of techni-
cal or professional experts composed of one representative
each from the department of agriculture, department of
health and social services, department of natural
resources, university of Wisconsin and such other
representatiges of other governmental agencies or the
general public as the board designates. The council
shall generally assist the review board and shall assist
particularly in obtaining scientific data and coordinating
pesticide regulatory, enforcement, research and educa-
tional functions of the State.
(3) The pesticide review board shall
report to the governor and the legislature any pesticide
-------
- - - -• 445
T. Frangos
matters it finds are of vital concern for the protection
of the health and well-being of people or for the pro-
tection of fish, wildlife, plants, soil, air and water
from pesticide pollution. Such report may include its
recommendations for legislative or other governmental
action.
(End)
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450
T. Frangos
ORAP 200
The people of Wisconsin have something to
say about the kind of outdoors they want. They can make
a commitment now that will help over the next dozen year;
to: (1) fight pollution of the State's waters, and (2)
further expand recreational opportunities, making more
available to more people.
AN EARLY BOOST
In 1961, the legislature boosted outdoor
recreation when it passed ORAP--the Outdoor Recreation
Act Program. This act placed a 1^ tax on a pack of
cigarettes, which was used to speed up acquisition and
development of lands.
There has been good progress—more chance;
have been created for fishing, camping, hiking, bird
watching, hunting, boating, picnicking, swimming, and
for just enjoying the peace of quiet places.
But the job can never get done this way--
not at the rate we are growing! Another million people
by 1980, or about 250 more every day! The demand is
already greater than the supply, and steadily becoming
greater. Overcrowding, overu-se and misuse even now are
-------
451
T. Frangos
threatening the very values we need and want from the
outdoors. Furthermore, this growing population is pro-
ducing more and more wastes—domestic and industrial--
which are fouling the lifeblood of the land.
THE NEXT STEP
And so in 1969 there is a new ORAP and a
new challenge. ORAP 200 is an Outdoor Resources Action
Plan that will probably be presented to the voters of
Wisconsin in April asking for a bond issue of $200
million to accelerate water pollution control and outdoor
recreation programs.
ORAP 200 is a vital package. It deals
with clean water, scenery, wildlife habitat, wilderness,
places to recreate and to be recreated--in short, it
involves the livability of the environment, as well as
the quality of our own living.
It deals with things that matter to all
people--businessmen and housewives, young people and the
old folks, nature lovers and sports enthusiasts, resi-
dents and visitors.
-------
452
•
T. Prangos
THE ORAP DOLLAR...$.72 for pollution control
Wisconsin residents use nearly half a
billion gallons of water each day for drinking, cooking,
bathing, laundry and dishwashing, and flushing away of
wastes. These waste-bearing waters are directed to
sewers and treatment plants, and ultimately back to our
lakes and streams. Most of our sewage plants today
can't cope with this burden.
Most communities have recognized their
responsibility. They want to do the .job, but they are
counting on promised Federal funds to help modernize
their treatment systems, and these dollars are in short
supply.
ORAP 200 can fill this gap and get work
rolling by:
DIRECT STATE AID
Wisconsin law permits payment by the
State of 25 percent of the cost of approved sewage treat-
ment plants. These payments must, however, be in equal
annual installments over a 5- to 30-year period. Funds
available through bonding would enable the State to make
direct, lump-sum payments instead, easing the financial
-------
453
T. Frangos
burden on the municipality.
ADVANCE OF FEDERAL AID
Because of limited funds and prior commit
ments to certified projects, only 12 top priority pol-
lution abatement projects could be given Federal
assistance in Wisconsin this fiscal year. Meanwhile a
backlog of some 90 applications for Federal aid has
developed, and indications are that we will need nearly
500 pro.ject starts in the next 6 years.
Bonding under ORAP 200 would provide
funds to advance at least 25 percent of the cost of
eligible projects in anticipation of Federal reimburse-
ment. At least $50 million in new pro.ject starts could
be generated each year until the backlog is eliminated,
and continuous upgrading of facilities at a rate of $20
million per year could be assured.
ELIMINATING DELAYS
Funds from these two sources, together
with Federal aids available annually, would assure
municipalities of at least 55 percent financial assistan
This will:
1. Simplify financing and reduce
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454
T. Frangos
interest costs for municipalities.
2. Ease the property tax burden.
3. Assure all communities of equi-
table treatment.
4. Overcome the tendency to delay
making local commitments until matching funds
are available.
5. Shift emphasis from .-Just coping
with pollution to a positive program of pro-
tection of public health, cleaner streams,
greater recreational potential.
THE ORAP DOLLAR...$.28 for outdoor recreation
Money spent accelerating and improving the
outdoor recreation program will be directed into three
main efforts:
MORE RECREATIONAL SPACE
Highest priority in the recreational
picture is "a place to go." ORAP money will go toward
securing land, developing recreational resources, and
operating and maintaining developed areas. Additional
recreational space will include city, county and State
parks, recrational areas in county forests, and historic
-------
455
T. Frangos
sites. In addition, ORAP will provide tax assistance
to local governments and technical help for recreation
and natural resource planning.
A BETTER RECREATIONAL ENVIRONMENT
Some proposed ORAP programs are aimed at
producing a quality environment for fish, wildlife and
people—for example, improvement of county forest wild-
life habitat, production of coho salmon, creation of
new lakes and additional access, planting of shade trees
preservation of already designated wild rivers, and
acquiring of scenic easements.
EXPANDED JOB OPPORTUNITIES
Other ORAP programs are designed both to
help get development and management work done in the
field and,at the same time, provide employment and out-
door experiences--for example, conservation work programs
for Milwaukee area residents, and additional conservatior
youth camps.
ACT NOW!
To meet tomorrow's pressures, today's
money source must be changed so that it can grow. The
means of financing ORAP 200 recommended by the Governor's
-------
T. Frangos
ORAP Task Force is bonding.
Bonding is a well-established practice,
and one that can speed up water pollution control and
create additional opportunities for outdoor recreation.
The dollar will do more work at this time than it will
in the inflationary future. Also, the people who will
be crowding into the years ahead will be paying their
fair share towards maintaining the quality of their
environment, and at today's prices.
It is not a crash program. The legisla-
ture will be asked each session to approve projects and
will issue enough bonds to cover them.
But there is a real sense of urgency now!
It is necessary to intensify measures to clean up waters
used in waste disposal so that lakes and streams do not
become cesspools and sewers. And it is necessary to
preserve open space and recreational areas while they
are still available—and before spiralling costs place
them out of public reach.
About half the States in the country have
financed outdoor recreational programs through bonding,
and several have underwritten accelerated water pollution
-------
457.
T. Frangos
control through the same device. The Michigan legisla-
ture and people in referendum have just approved a $435
million bond issue--$100 million for recreation and $335
million for pollution control.
Without ORAP, there will still be lakes
and streams...but will the water be clean enough to drinl:
or to catch fish or swim in?
Without ORAP, there will still be hunting
and boating and camping. . .but will there be space for yoik?
Without ORAP, there will still be rivers.
but will any remain wild and unspoiled for your children1;
Without ORAP, there will still be a Wis-
consin...but will it be a land in which we can live
creatively?
THE WISCONSIN DEPARTMENT
OF NATURAL RESOURCES
BOX 450
MADISON, WISCONSIN 53701
ORAP 200
For Clean Water & A Finer Outdoors
-------
438
T. Frangos
Let us proclaim a creed to preserve our
natural heritage with rights and the duties to respect
those right:
The right to clean water—and
the duty not to pollute it.
The right to clean air--and the
duty not to befoul it.
The right to surroundings reason-
ably free from man-made ugliness--and the
duty not to blight.
The right to easy access of places
of beauty and tranquility where every family
can find recreation and refreshment--and the
duty to preserve such places clean and
unspoiled.
The right to enjoy plants and
animals in their natural habitats--and the
duty not to eliminate them from the face
of this earth.
THE PRESIDENT'S MESSAGE TO
THE 89th CONGRESS
-------
T. Prangos
»
MR. STEIN: Are there any comments or
questions?
MR. POSTON: I have.
MR. STEIN: Mr. Poston.
MR. POSTON: For clarification, Mr.
Frangos, I note some of the dates which you have set in
your schedules for pollution abatement measures, that
these are extended beyond what you had originally set
under your water quality standards implementation plan.
Could you enlighten us on this, what this means?
MR. FRANCOS: The December 1972 date is
an outside date that we indicated for purposes of this
Conference. In some instances we will get compliance
ahead of that date.
With respect specifically to the implemen-
tation program, some of those are falling behind. Others
that we can meet we are going to continue and press for
those deadlines, but we have not used the December 1972
date to extend the time granted to any of our communities
Any time extensions that we will need are based on other
factors.
MR. POSTON: In other words, you do not
-------
460
T. Frangos
intend to have any extension of time beyond what was
set for the implementation plan and the standards set up
MR. FRANGOS: That is right, that Decem-
ber 1972 date does not automatically carry anybody beyon
what we think is reasonable and upon which we made
recommendations and issued legal orders.
MR. POSTON: I wanted to be clear that
this Conference was not in any way going to extend any
dates for abatement of pollution.
MR. FRANGOS: No, we don't look at this
Conference as an excuse for stretching any of this out.
MR. POSTON: The second item that I wante
to comment on was the removal of phosphates from indus-
trial wastes. And I note that there hadn't been any
particular schedules for industry. At what levels would
you propose or are there any industries in Wisconsin
which have phosphates that would require treatment and
reduction?
MR. FRANGOS: I think our general approac^
would be that where we find those in quantities or con-
centrations that as a minimum approach the concentration
that you have got in a, quote, standard, unquote,
-------
461
T. Frangos
domestic waste, that we would also apply this to any of those
sources.
MR. POSTON: In other words, industries
would have the same requirement to remove--
MR. FRANGOS: Where there is a significan
MR. POSTON: Yes, significant—
MR. FRANGOS: —Quantity of phosphorus in
the wastes that are generated.
MR. POSTON: That is all.I have.
MR. STEIN: I don't want to hold this up
because I think we have had recommendations from two
States where they are thinking in terms of an 80 percent
reduction on the basinwide or Statewide basis, and I
think if we do this, adopt this or consider this, maybe
we can take care of all these problems at one time.
Any other comments or questions?
If not, Mr. Frangos, I would like to than
Mr. Voigt and you for an excellent presentation, and
really excellent, because I am convinced now, hearing
all four States, that we are going to clean up Lake
Michigan. I think, as you know, the Federal-State
relations sometimes don't run as smoothly as you might
-------
462
T. Frangos
think, and you just have to look at the past record to
see some of the colloquys that we have had with Wisconsin
in the past.
But on the basis of this, let me say for
both of you people, I can understand what you are saying
and I have almost no questions. I can agree with the
proposal. I think this is a great thing that has hap-
pened in Wisconsin. Of course possibly leading to this,
as some of you may know, Tom Frangos used to work in
enforcement in one of our regions in New York and we
hated to lose him, But now that he is in Wisconsin and
you are doing this terrific Job, as this report indicate!
possibly this is really the way to do business. I am
very, very much encouraged with this report from Wisconsin,
because I think that the time of misunderstanding of whal
each one says is in the past, and while we may have
differences, they will probably deal with substance.
But as far as I can see, your program
and your approach to this and your accomplishments are
excellent and I really want to extend my compliments and
congratulations to you people there.
MR. FRANGOS: Thank you.
-------
463
Murray Stein
ME. STEIN: You are really doing well.
This will conclude the State presentations
Now we have a reoort from the United
States Department of Agriculture. It is per Recommenda-
tion No. 16:
"The United States Department of Agricul-
ture be requested to submit to the Conferees a report
within six months on agricultural programs to prevent
pollution from agricultural land use such as siltation
and bank stabilization."
Mr. Poston, has that been presented?
ME. POSTON: We received a copy of
this report from Mr. Bathurst, of the Department of
Agriculture, and he was unable to be here himself. I
would ask Mr. Schneider, of my office, to present this
report. It is some 15 oages. If there are parts that
it is possible to brief down, I would suggest you do
that.
Mr. Schneider.
ME. STEIN: Any summary would be aopre-
ciated.
-------
464
R. J. Schneider
-»
STATEMENT OF THE U. S. DEPARTMENT
OF AGRICULTURE
Presented by
Robert J. Schneider, FWPCA, Chicago, Illinois
MR. SCHNEIDER: This is a statement of
the U. S. Department of Agriculture program to reduce
sediment pollution in Lake Michigan —
MR. STEIN: By the way, if you wish, this
entire report will appear into the record as if read,
without objection.
MR. POSTON: Yes.
MR. STEIN: Would you go ahead, Mr.
Schneider, please.
MR. SCHNEIDER: Our environment is now in
jeopardy. Pollution in the form of dirty water, foul
air, and contaminated soil is deteriorating our sur-
roundings. Sediment, the major threat to clean water, b'lt
is defined as solid matter, organic or mineral, that is
being moved from its site of origin by water, air, ice,
or gravity.
Let's discuss its sources, the damage
-------
463
R. J. Schneider
and problems it creates and possible solutions to this
depredator of our environment.
The greatest volume of pollutants in
surface water is the sediment produced by soil erosion.
Four billion tons of soil material are translocated each
year and carried by flowing water to other locations.
About one quarter of this sediment, or 100 million tons,
reaches the major streams of the United States annually.
Sources of sediment are sheet erosion by
water; gullying by concentrated runoff; streambank
erosion; flood erosion by scouring in low areas; erosion
from urban, industrial, and other construction sites;
roadside erosion from cuts and fills; runoff from surface
mining areas; and pollutants from wastes of cities and
industries.
Because of the large area involved,
agricultural lands supply the greatest amount of sediment
to the total load carried by streams. Land in row crops
produces the most soil loss. This amount is dependent tc
a large extent on the crops, tillage practices, slope
and climate. While agricultural lands produce much
sediment, urban areas under construction produce a
-------
466
R. J. Schneider
disproportionately large share of the sediment load.
Many such areas lie in close proximity to major streams
and "bodies of water, so the massive amounts of sediment
are introduced directly into the water. Tilled agri-
cultural lands are scattered and, therefore, much sedi-
ment is filtered out before it reaches major water
sources. Grass and forest lands, on the average, con-
tribute much less.
Population centers have imposed a tremend
demand on the use of land for urban development, highway
construction, industry, parks, airports, shopping center
golf courses, reservoirs and a host of other uses. Thes
developments are taking more than one and a quarter
million acres a year, much of it valuable fruit and vege
table farms.
Since World War II, urban developments
have vastly increased the evidence of land erosion and
created untold damage. In many of these developments
soil conservation is ignored and the result is disastero
One such urban area in Maryland, of the many thousands
in the country, produced 25,000 tons of sediment per
square mile annually. Similar cases are occurring
)US
-------
46?
R. J. Schneider
around Lake Michigan where construction leaves soil
material unprotected.
Erosion damage and silt production along
roadsides is likewise a large contributor to the total
sediment problem. Roadside erosion defaces landscapes
and makes roads dangerous to travel. It results in
excessive highway maintenance cost. As much as 350 tons
of soil per acre may be lost in a single year. This is
many times the maximum loss from a cultivated field.
Another large source of pollution in the
United States is the 3-2 million acres of land disturbed
by surface mining. Of this figure over two million acres
need conservation treatment. Forty percent has eroded
enough to form rills and gullies, causing a heavy silt
load that may drain into streams and lakes and destroy
fish and natural beauty. In many areas surface mining
is the major source of water pollution. Disturbing the
land surface for mining also destroys wildlife habitat.
Nearly two million acres have been destroyed by surface
mining alone.
Sand and gravel pits also pose a problem,
although not as serious or extensive. It is difficult
-------
468
R. J. Schneider
to establish vegetative cover on these areas. The
uncovered soils are, therefore, exposed to wind and
water erosion and readily add their sediment to the
nearest water course.
Much of the sediment in many streams
comes from erosion of the streambank itself. Because
stream and river banks are part of the water and sedi-
ment conveyance system, soil eroded from these lands is
immediately converted to damaging sediment. This is
also true of erosion on many lake shores which dump
thousands of tons of soil directly into the lakes annualfLy,
Sand dunes cause a problem in some areas. They are
usually bare of vegetation and are continually shifting
and moving, covering roads, woodland areas and waterways
It is quite likely the damages caused by
sediment exceed one-half billion dollars annually. It
has a significant and deleterious effect on water qualitjy.
Fish are killed by sediment inhibiting breathing and
by destroying their habitat through pollution of spawninjg
beds .
Sediment deposited on good land damages
crops and may reduce the productivity of the soils.
-------
469
R. J. Schneider
Deposits in rivers reduce their capacity and may cause
flooding or even impair the drainage of adjacent lands.
Drainage and irrigation laterals filled with sediment
will not carry designed quantities of water and are
extremely costly to clean out. In addition, we lose
the equivalent of 400,000 acres of good land each year
from soil erosion and deterioration. Three times this.
much land is covered by concrete and asphalt each year.
This is an alarming fact when we consider there are less
than 500 million acres suitable for cultivation left.
The tendency toward more intensive farming results in
accelerated erosion.
Storage capacity of artificial reservoirs
and natural lakes is depleted by deposition of sediment.
This not only affects water supply and hydroelectric pow
but flood control as well. Sediment obstructs storm sew
and road ditches. It impedes navigation in harbors and
waterways and makes treatment expensive for municipal
and industrial water. It causes excessive wear on
pumping equipment and irrigation systems. In some
situations, sediment in water has clogged underground
aquifers. This is extremely important when there is a
;r
rs
-------
470
R. J. Schneider
need to rechc-r.^e depleted water sources.
/"•he many salts and nutrients adsorbed on
sediment particles contribute to the lowering of water
quality and the eutrophication of lak-es. Phosphates
applied as fertilizers have a great affinity for soil
particles and are moved into streams only as soil moves.
Effectively controlling erosion has a positive effect
on controlling phosphate pollution from agricultural
fertilizers .
The deposition of sediment on beaches
detracts from their use and affects their aesthetic value
as well. It also has an influence on the recreation
aspects of water for swimming, boating, skiing and
fishing.
The problem of dredging and maintaining
channels is of great magnitude, both in volume of materiajl
moved and the sum spent handling and disposing of the
material. It is estimated that the total volume of
material dredged and excavated annually from streams,
estuaries and harbors exceeds one-half billion cubic
yards. In many cases land must be acquired for disposal
areas which adds to the cost of equipment and labor.
-------
471
R. J. Schneider
Effective sediment control from all erosion sources can
greatly reduce the volume of sediment to be dredged.
In the past the control of erosion upstreajm
on farms has received the most attention. But if con-
servation measures were applied everywhere, not just on
farms, much of the sediment pollution could be eliminate^,
It is the unwise land use on all the acres of both urban
and rural land that fills reservoirs with sediment, floods
basements, cracks foundations, pollutes water, damages
roads costing millions of dollars, and damages wildlife
and recreation areas indefinitely. With the further
concentration of industry and people in the watersheds,
the problems of sediment pollution will be intensified
unless all segments of society lend their support to
effective sediment control programs on all land uses.
The earth now has as much water and soil
as it will ever have. What is left needs to be properly
treated and maintained. The quality of water and con-
dition of the soil is dependent on the treatment we give
the land from the time precipitation falls on the soil
until it reaches the lake or ocean. The problems facing
us are nothing new, but simply ones that are pyramiding
-------
472
R. J. Schneider
with the sophisticated needs of our society. For solu-
tions, consideration must be given to all segments of
our population—industrial, agricultural and urban.
Increased pollution need not be the price we pay for an
affluent society.
The control of sediment, an absolute
necessity for survival, will be extremely beneficial.
It will include the reduction in cost of continually
removing sediment from channels, harbors, and reservoirs
reduction in damage to wildlife; enhancement of recrea-
tion facilities; lower cost in treating domestic and
industrial water; less maintenance cost with water dis-
tribution systems and highways; and prevention of damage
to flood plains. Most important of all is keeping and
maintaining the land for future resource use.
Individual citizens control most of the
countryside, landscape, and natural resources. Here on
privately owned land is where the biggest and most diffi
cult job of resource management is being performed, and
where, by necessity, it will have to be performed in the
future.
While much has been done to solve soil
-------
473
R. J. Schneider
and water conservation problems on the Nation's cropland
much remains to be done. More than 25 million acres
presently farmed are not suitable for cropland. Another
49 million acres are suitable for only occasional or
limited cultivation. A major conservation problem is to
convert these acres to vegetative cover or provide the
necessary conservation measures on a continuing basis.
Nearly 31 million acres expected to be
converted to cropland by 1975 will need establishment
of conservation practices.
Of the 437 million acres expected to be
used as cropland in 1975, 308 million acres, or 93 per-
cent, has some conservation problem that limits its use
and 272 million acres, or 62 percent, need conservation
treatment of some kind. Erosion hazards are the dominan1
problem on cropland with excess water and unfavorable
soil being secondary problems. Conservation practices
such as contouring, stripcropping and terracing comple-
mented with vegetation cover and proper rotations would
alleviate much of our erosion problems.
Nearly three-fourths of the pasture and
range land needs conservation treatment and improvement.
-------
474
R. J. Schneider
Establishment of cover, improving existing cover, water
management and protection from overgrazing are the types
of conservation treatment needed.
Private forests and woodlands likewise
need treatment on more than half of the 55 million acres
in this country. These acres would benefit from pro-
tection from fire, insects, disease, and animals.
Timber establishment and management would greatly aid
erosion control.
Of all the land in the United States,
soil erosion is the dominant problem on 59 percent of
the land.
The problem of controlling critical sedi-
ment sources on nonagricultural land exceeds that of
agricultural land because few people are aware of the
serious problem or are willing to do anything about it.
Gullying, stream bed and streambank ero-
sion can be controlled by use of structural means such
as check dams, drop structures, streambank protection
work or gradient control. In addition, floodwater
retarding structures, flood control and stream regulatin
reservoirs and debris basins orovide for detention of
g
-------
475
R. J. Schneider
sediment that would otherwise reach harbors and other
downstream improvements.
There are almost one-half million miles
of roads that need treatment for the control of erosion.
The cost of roadside erosion control varies, but may
run from $200 a mile to many times more for a complete
job of proper sloping, vegetation, drainage and struc-
tures. Road builders, developers, other builders and
land users can stop erosion and subsequent deposition
by (1) exposing the smallest amount of bare land for the
shortest period of time; (2) using temporary ground cove]
and planting permanent sod quickly; (3) using diversions,
sediment basins and terraces to trap sediment; (4) saving
and using natural vegetation whenever possible; and (5)
following natural topography and land drainage when layirjg
out large developments.
The mining industry, conservation distric
and all levels of government need to work together to pu
practical principles into surface mining operations.
Some excellent work has been done in this respect, but
much more needs to be done.
Before raining begins, a plan needs to be
-------
476
R. J. Schneider
worked out to prevent the heavy sediment loads from
moving into water courses. While mining is going on,
steps need to be taken to control erosion on the side
and on haul roads. This would include quick-growing
plants for immediate protection and permanent cover
when mining is finished. Surface runoff in mining areas
needs to be controlled on a watershed basis to fit streai
capacities and prevent harmful deposition. In addition,
drainage needs to be controlled to maintain adequate
cover and keep sediment out of streams. Many lakes coul
be created on the excavated sites. The proper use of
vegetation and water management would control sediment
and add beauty and wildlife to the area.
The quantity and quality of water that
reaches the estuaries is determined by land use and
treatment upstream. We now have the technical know-how
and ability to deal with the problem. It is, however,
limited by legislation, authorities and resources.
Technical and financial assistance in
installing special measures for pollution control should
be expanded. Long-term credit and cost-sharing must be
increased.
-------
477
R. J. Schneider
Local government needs further assistance
in effective erosion and sediment control programs in
urban and industrial developments. This additional
financial and technical assistance could aid in the
formulation of model regulations. The local organiza-
tion would develop and maintain the authorities and
regulation.
In addition, other authorities to control
erosion along highways, streambanks, lakes and strip
mined areas are essential. Controlling sediment has
long been an objective of the U. S. Department of Agri-
culture, both in its technical assistance, cost-sharing,
research and credit programs.
This Department serves all America,
including those in small communities as well as those
on the farm and in the city. USDA offers a wide variety
of money-saving, health-preserving, comfort-producing
opportunities, creating services and technical help for
all the people—more than any other government departmen
A large share of these services consist
of helping individuals, communities, groups, organiza-
tions and/or other Federal and State agencies preserve
-------
478
1
R. J. Schneider
and maintain the soil and water resources of this countr;
This directly relates to the sediment and pollution of
our streams, lakes, ponds, reservoirs and the air we
breathe. Uncontrolled sediment may affect every citizen
with higher taxes, electricity and water bills, higher
food and clothing prices and the necessity for more
disaster funds. It is better to practice conservation
and hold the soil in place rather than pay to remove
sediment and silt from roads, harbors, rivers and
reservoirs.
Mr. Chairman, the last five pages of this
report deal with some of the ongoing programs and I will
.just summarize this.
The report goes on to say that much has
been done to correct erosion problems. The Department
of Agriculture listed Soil Conservation Service, the
Agricultural Stabilization and Conservation Service, the
Farmers Home Administration, and the Forest Service as
their agencies that deal with these programs.
They mention the Small Watershed Program,
Public Law 566, as a tool which they use for aiding
local organizations in planning and carrying out
-------
479
R. J. Schneider
watershed projects.
It is mentioned here that the National
Inventory of Soil and Water Conservation needs is being
updated by the Department of Agriculture and it says thai
current information will provide data for formulating
programs, planning conservation work, conducting research
and other purposes by public agencies and private insti-
tutions .
In conclusion it says that these agencies
all contribute to the overall resource conservation and
development in an area. USDA continually endeavors to
alleviate and eliminate erosion and resulting sediment ar
pollutants. We have the know-how to control sediment in
all land. Additional effort and legislation to carry out
the necessary conservation measures are needed. The wide
variety of services and help USDA offers to all the peopl
will enhance man's total environment physically, socially
and esthetically, for soil erosion affects every one and
shapes the foundation of our environment.
That concludes the statement.
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480
R. J. Schneider
(The following is the document submitted
by the United States Department of Agriculture:)
STATEMENT ON U.S. DEPARTMENT OF AGRICULTURE PROGRAM
TO REDUCE SEDIMENT POLLUTION IN LAKE MICHIGAL
Our environment is now in jeopardy.
Pollution in the form of dirty water, foul air, and
contaminated soil is deteriorating our surroundings.
Sediment, the major threat to clean
water, is defined as solid matter, organic or mineral,
that is being moved from its site of origin by water,
air, ice or gravity.
Let's discuss its sources, the damage and
problems it creates, and possible solutions to this
depradator of our environment.
The greatest volume of pollutants in
surface water is the sediment produced by soil erosion.
Four billion tons of soil material are translocated each
year and carried by flowing water to other locations.
About one quarter of this sediment, or 100 million tons,
reaches the major streams of the United States annually.
-------
481
R. J. Schneider
Sources of sediment are sheet erosion by
water; gullying by concentrated runoff; streambank
erosion; flood erosion by scouring in low areas; erosion
from urban, industrial and other construction sites;
roadside erosion from cuts and fills; runoff from surface
mining areas; and pollutants from wastes of cities and
industries.
There are presently 1,850 million acres
of cropland, forestland and rangeland in the United
States. Of this total, approximately 50 percent is
sub.ject to erosion. These figures are indicative of
the tremendous job that lies ahead.
Because of the large area involved, agri-
cultural lands supply the greatest amount of sediment to
the total load carried by streams. Land in row crops
produces the most soil loss. This amount is dependent tc
a large extent on the crops, tillage practices, slope
and climate. While agricultural lands produce much
sediment, urban areas under construction produce a dis-
proportionately large share of the sediment load. Many
such areas lie in close proximity to major streams and
bodies of water, so the massive amounts of sediment are
-------
482
R. J. Schneider
introduced directly into the water. Tilled agricultural
lands are scattered and, therefore, much sediment is
filtered out before it reaches major water sources.
Grass and forest lands, on the average, contribute much
less.
Population centers have imposed a tremen-
dous demand on the use of land for urban development,
highway construction, industry, parks, airports, shoppin
centers, golf courses, reservoirs and a host of other
uses. These developments are taking more than one and
a quarter million acres a year,much of it valuable fruit
and vegetable farms.
Since World War II, urban developments
have vastly increased the evidence of land erosion and
created untold damage. In many of these developments
soil conservation is ignored and the result is disastrou
One such urban area in Maryland, of the many thousands
in the country, produced 25,000 tons of sediment per
square mile annually. Similar cases are occurring
around Lake Michigan where construction leaves soil
material unprotected.
Erosion damage and silt production along
-------
483
R. J. Schneider
roadsides is likewise a large contributor to the total
sediment problem. Roadside erosion defaces landscapes
and makes roads dangerous to travel. It results in
excessive highway maintenance cost. As much as 350 tons
of soil per acre may be lost in a single year. This is
many times the maximum loss from a cultivated field.
Another large source of pollution in the
United States is the 3.2 million acres of land disturbed
by surface mining. Of this figure, over two million acr
need conservation treatment. Forty percent has eroded
enough to form rills and gullies, causing a heavy silt 1<
that may drain into streams and lakes and destroy fish
and natural beauty. In many areas surface mining is the
ma.jor source of water pollution. Disturbing the land
surface for mining also destroys wildlife habitat.
Nearly two million acres have been destroyed by surface
mining alone.
Sand and gravel pits also pose a problem,
although not as serious or extensive. It is difficult
to establish vegetative cover on these areas. The
uncovered soils are, therefore, exposed to wind and
water erosion and readily add their sediment to the
ad
-------
484
R. J. Schneider
nearest water course.
Much of the sediment in many streams
comes from erosion of the streambank itself. Because
stream and river banks are part of the water and sedimen
conveyance system, soil eroded from these lands is
immediately converted to damaging sediment. This is
also true of erosion on many lake shores which dump
thousands of tons of soil directly im;o the lakes
annually. Sand dunes cause a problem in some areas.
They are usually bare of vegetation and are continually
shifting and moving, covering roads, woodland areas and-
waterways.
There is some relationship between pol-
luted air and water. Exposed areas on dunes and mines
may be easily eroded by air currents. Soils left unpro-
tected are subject to wind erosion as well as water
erosion. Pollution by dust is a serious problem where
wind, soil and moisture conditions are conducive to
blowing.
It is quite likely the damages caused by
sediment exceed one-half billion dollars annually. It
has a significant and deleterious effect on water qualit
-------
485
R. J. Schneider
Fish are killed by sediment inhibiting breathing and by
destroying their habitat through pollution of spawning
beds .
Sediment deposited on good land damages
crops and may reduce the productivity of the soils.
Deposits in rivers reduce their capacity and may cause
flooding or even impair the drainage of adjacent lands.
Drainage and irrigation laterals filled with sediment
will not carry designed quantities of water and are
extremely costly to clean out. In addition, we lose
the equivalent of 400,000 acres of good land each year
from soil erosion and deterioration. Three times this
much land is covered by concrete and asphalt each year.
This is an alarming fact when we consider there are less
than 500 million acres suitable for cultivation left.
The tendency toward more intensive farming results in
accelerated erosion.
Storage capacity of artificial reservoirs
and natural lakes is depleted by deposition of sediment.
This not only affects water supply and hydroelectric
power, but flood control as well. Sediment obstructs
storm sewers and road ditches. It impedes navigation in
-------
486
R. J. Schneider
harbors and waterways and makes treatment expensive for
municipal and industrial water. It causes excessive
wear on pumping equipment and irrigation systems. In
some situations, sediment in water has clogged under-
ground aquifers. This is extremely important when there
is a need to recharge depleted water sources.
The many salts and nutrients adsorbed on
sediment particles contribute to the lowering of water
quality and the eutrophication of lakes. Phosphates
applied as fertilizers have a great affinity for soil
particles and are moved into streams only as soil moves.
Effectively controlling erosion has a positive effect on
controlling phosphate pollution from agricultural ferti-
lizers .
The deposition of sediment on beaches
detracts from their use and affects their aesthetic valu^
as well. It also has an influence on the recreation
aspects of water for swimming, boating, skiing and
fishing.
The problem of dredging and maintaining
channels is of great magnitude, both in volume of material
moved and the sum spent handling and disposing of the
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487
R. J. Schneider
material. It is estimated that the total volume of
material dredged and excavated annually from streams,
estuaries and harbors exceeds one-half billion cubic
yards. In many cases land must be acquired for disposal
areas which adds to the cost of equipment and labor.
Effective sediment control from all erosion sources
can greatly reduce the volume of sediment to be dredged.
In the past the control of erosion upstream
on farms has received the most attention. But if con-
servation measures were applied everywhere, not .just on
farms, much of the sediment pollution could be eliminate^.
It is the unwise land use on all the acres of both urban
and rural land that fills reservoirs with sediment,
floods basements, cracks foundations, pollutes water,
damages roads costing millions of dollars and damages
wildlife and recreation areas indefinitely. With the
further concentration of industry and people in the
watersheds, the problems of sediment pollution will be
intensified unless all segments of society lend their
support to effective sediment control programs on all
land uses.
The earth now has as much water and soil
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488
R. J. Schneider
as it will ever have. What is left needs to be properly
treated and maintained. The quality of water and condi-
tion of the soil is dependent on the treatment we give
the land from the time precipitation falls on the soil
until it reaches the lake or ocean. The problems
facing us are nothing new, but simply ones that are
pyramiding with the sophisticated needs of our society.
For solutions, consideration must be given to all seg-
ments of our population—industrial, agricultural and
urban. Increased pollution need not be the price we .pay
for an affluent society.
The control of sediment, an absolute
necessity for survival, will be extremely beneficial.
It will include the reduction in cost of continually
removing sediment from channels, harbors and reservoirs;
reduction in damage to wildlife; enhancement of recrea-
tion facilities; lower cost in treating domestic and
industrial water; less maintenance cost with water dis-
tribution systems and highways; and prevention of damage
to flood plains. Most important of all is keeping and
maintaining the land for future resource use.
Individual citizens control most of the
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489
R. J. Schneider
countryside, landscape and natural resources. Here on
privately owned land is where the biggest and most diffi-
cult job of resource management is being performed, and
where, by necessity, it will have to be performed in the
future.
While much has been done to solve soil
and water conservation problems on the Nation's cropland,
much remains to be done. More than 25 million acres
presently farmed are not suitable for cropland. Another
49 million acres are suitable for only occasional or
limited cultivation. A major conservation problem is to
convert these acres to vegetative cover or provide the
necessary conservation measures on a continuing basis.
Nearly 31 million acres expected to be corjt-
verted to cropland by 1975 will need establishment of
conservation practices.
Of the 437 million acres expected to be
used as cropland in 1975, 308 million acres, or 93 percent.
has some conservation problem that limits its use; and
272 million acres, or 62 percent, needs conservation
treatment of some kind. Erosion hazards are the dominan
problem on cropland with excess water and unfavorable
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490
R. J. Schneider
soil being secondary problems. Conservation practices
such as contouring, stripcropping and terracing comple-
mented with vegetation cover and proper rotations would
alleviate much of our erosion problems.
Nearly three-fourths of the pasture and
range land needs conservation treatment and improvement.
Establishment of cover, improving existing cover, water
management and protection from overgrazing are the types
of conservation treatment needed.
Private forests and woodlands likewise
need treatment on more than half of the 55 million
acres in this country. These acres would benefit from
protection from fire, insects, disease and animals.
Timber establishment and management would greatly aid
erosion control.
Of all the land in the United States,
soil erosion is the dominant problem on 59 percent of
the land.
The problem of controlling critical sedi-
ment sources on nonagricultural land exceeds that of
agricultural land because few people are aware of the
serious problem or are willing to do anything about it.
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__ 491
R. J. Schneider
Gullying, stream bed and streambank
erosion can be controlled by use of structural means
such as check dams, drop structures, streambank protec-
tion work, or gradient control. In addition, flood
water retarding structures, flood control and stream
regulating reservoirs and debris basins provide for
detention of sediment that would otherwise reach harbors
and other downstream improvements.
There are almost one-half million miles
of roads that need treatment for the control of erosion.
The cost of roadside erosion control varies, but may
run from $200 a mile to many times more for a complete
job of proper sloping, vegetation, drainage and struc-
tures. Road builders, developers, other builders and
land users can stop erosion and subsequent deposition
by (1) exposing the smallest amount of bare land for
the shortest period of time; (2) using temporary ground
cover and planting permanent sod quickly; (3) using
diversions, sediment basins and terraces to trap sedi-
ment; (4) saving and using natural vegetation whenever
possible; and (5) following natural topography and land
drainage when laying out large developments.
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492
R. J. Schneider
The mining industry, conservation dis-
tricts and all levels of government need to work togethe:-
to put practical principles into surface mining operatioi
is .
Some excellent work has been done in this respect, but
much more needs to be done.
Before mining begins, a plan needs to be
worked out to prevent the heavy sediment loads from
moving into water courses. While mining is going on,
steps need to be taken to control erosion on the side and
on haul roads. This would include quick-growing plants
for immediate protection and permanent cover when mining
is finished. Surface runoff in mining areas needs to
be controlled on a watershed basis to fit stream capaci-
ties and prevent harmful deposition. In addition,
drainage needs to be controlled to maintain adequate
cover and keep sediment out of streams. Many lakes
could be created on the excavated sites. The proper use
of vegetation and water management would control sedi-
ment and add beauty and wildlife to the area.
The quantity and quality of water that
reaches the estuaries is determined by land use and
treatment upstream. We now have the technical know-how
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493
R. J. Schneider
and ability to deal with the problem. It is, however,
limited by legislation, authorities and resources.
Technical and financial assistance in
installing special measures for pollution control should
be expanded. Long-term credit and cost-sharing must be
increased.
Local government needs further assistance
in effective erosion and sediment control programs in
urban and industrial developments. This additional
financial and technical assistance could aid in the
formulation of model regulations. The local organizatior
would develop and maintain the authorities and regulatior
In addition, other authorities to control
erosion along highways, streambanks, lakes and strip
mined areas are essential. Controlling sediment has lon
been an objective of the U. S. Department of Agriculture^
both in its technical assistance, cost-sharing, research
and credit programs.
This Department serves all America,
including those in small communities as well as those on
the farm and in the city. USDA offers a wide variety of
money-saving, health-preserving, comfort-producing
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4Q4
R. J. Schneider
opportunities, creating services and technical help for
all the people—more than any other Government Departmenl
A large share of these services consist
of helping individuals, communities, groups, organiza-
tions and/or other Federal and State agencies preserve
and maintain the soil and water resources of this country
This directly relates to the sediment and pollution of
our streams, lakes, ponds, reservoirs and the air we
breathe. Uncontrolled sediment may affect every citizen
with higher taxes, electricity and water bills, higher
food and clothing prices and the necessity for more
disaster funds. It is better to practice conservation
and hold the soil in place rather than pay to remove
sediment and silt from roads, harbors, rivers and
reservoirs.
Much has been done to correct erosion
problems. The U. S. Department of Agriculture Soil
Conservation Service is the technical arm of action with
responsibility for soil and water conservation. It
provides the assistance of professional conservationists
to all land users and decision makers concerning the
proper use of the land. This 'includes planning commissiojns,
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493
R. J. Schneider
land use boards, health officials, county government
and others by providing soil information and technical
assistance. This assistance, given through Soil Conserv^,-
tion Districts, includes planning conservation programs
for the best possible use and treatment of the land and
water. Help is provided in the application of practices
and combinations of practices for erosion and water
control problems, including measures for retarding water
flow and reduction of sediment damage in streams and
lakes and along highways.
Agricultural Stabilization and Conservation
Service provides cost-sharing in urban areas and on farm;
to landowners in establishing conservation practices on
the land. SCS furnishes technical assistance to these
Agricultural Conservation Program (ACP) participants in
establishing specified measures pursuant to referrals
received from ASCS County Committees. In addition,
ASCS administers a Cropland Adjustment Program that
diverts land to recreation, wildlife habitat, natural
beauty, or other uses that control air and water pollution
Farmers Home Administration administers
loans and grants to install or improve rural water supply
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496
R. J. Schneider
and service systems, waste disposal systems, recreation
facilities, drain farmland and carry out soil conservation
measures for which the Soil Conservation Service has
provided technical assistance for design and layout.
There are also loans for conversion of cropland. These
loans help rural groups convert cropland to grazing
areas or forest uses that promote conservation of soil
and water.
The Forest Service, working with the
State forestry agencies, helps plan and install forestry
and related measures.
Under the Small Watershed Program, PL-566
SCS gives technical and financial aid to local organi-
zations in planning and carrying out watershed projects.
The purpose of a small watershed project is flood preven
tion, watershed protection, agricultural water managemen
recreation, municipal and industrial water supply, and
fish and wildlife development. These are community
projects.
The Soil Conservation Service, through
the PL-566 program, pays the cost of engineering service
and construction costs for flood prevention and up to 50
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497
R. J. Schneider
percent of the construction costs for irrigation,
drainage, recreation, fishing and wildlife developments.
All other costs must be paid by local organizations. To
help local people carry their share of watershed project
costs, Farmers Home Administration makes loans available
for developing these projects. Individual farmers may
also get ACP cost-share assistance to help establish
conservation practices to prevent erosion and runoff in
the watershed.
The National Inventory of Soil and Water
Conservation Needs is being updated by the U. S. Depart-
ment of Agriculture in cooperation with other Federal
agencies, States and local units of government. Pre-
liminary information from the watershed segment of the
inventory shows 618,377 acres of the Lake Michigan
drainage basin with floodwater and sediment problems.
Urban floodwater and sediment damage is also significant
in the basin. In addition, 417,678 acres are being
damaged by erosion. A need for water quality control
exists in 136 of the 416 watersheds in the basin. This
current information will provide data for formulating
programs, planning conservation work, conducting research
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498
R. J. Schneider
and other purposes by public agencies and private insti-
tutions .
The Soil Conservation Service has leader-
ship responsibilities in Resource Conservation and
Development Projects. These projects stimulate growth
through acceleration of conservation activities and land
use adjustments. Federal participation includes techni-
cal assistance to help landowners install conservation
measures, cost-sharing assistance on certain approved
conservation and development measures, and credit to
help landowners and local sponsores finance improvements
of the soil and water resources. Most USDA agencies may
become involved in this total resource development efforl
which will affect the sediment and deposition in streams
and lakes over a multi-county area.
Soil surveys developed by SCS in coopera-
tion with State experiment stations are used increasing!;
by builders, architects, city planners, and engineers
in land use planning in urban fringe areas. Soil maps
help planners and engineers determine where subdivisions
should go; where pipelines should be routed to avoid
unfavorable soils and underground rock formations; how
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499
R. J. Schneider
to avoid soils that are wet and subject to flooding;
and how to find soils suited for airports, recreation
areas and schools. These endeavors have a large bear-
ing on future sediment and erosion potential.
SCS, through its Plant Materials Centers
located throughout the country, carries out field trials
of different plant materials. Plant materials are
developed for use on areas difficult to maintain, such
as sand dunes, steep areas along highways and extremely
wet or dry areas. Many of these new plant materials are
responsible for quelling soil and wind erosion and pro-
tecting the soil and water resource.
Several agencies are involved in comprehensive
and community resource development which affects erosior
and sediment control. SCS provides soil, water, resource
engineering and other kinds of surveys and provides
technical assistance in planning resource use, develop-
ment and conservation. Economic research service provides
economic background. Statistical Reporting Service helf s
in survey planning. Consumer Marketing Service makes
payment to State marketing agencies to carry out market
service programs. Extension Service provides organiza-
tional, educational and technical assistance to help
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500
R. J. Schneider
communities analyze and identify community and area
problems; establish objectives; and select, develop and
use resources to attain them.
Farmers Home Administration makes grants
to public bodies for the preparation of comprehensive
area plans for water and sewer systems.
Through pooling agreements between ASGS
and community groups, costs are shared on community
projects Tor erosion and sediment control.
Agricultural Research Service supplies
information on techniques and facilities for processing
farm products and industrial use of agricultural commodi
ties. It carries on research programs in soil and water
to determine methods and ways of controlling soil and
water. Their findings may be adopted by others to alle-
viate or limit pollution of lakes, streams and air.
The SGS has Departmental leadership in
river basin planning activites. This program leads to
the delineation of problems related to land resource
areas for which project type solutions are necessary.
These agencies all contribute to the over
all resource conservation and development in an area.
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501
R. J. Schneider
USDA continually endeavors to alleviate and eliminate
erosion and resulting sediment and pollutants. We have
the know-how to control sediment on all land. Additional
efforts and legislation to carry out the necessary con-
servation measures are needed. The wide variety of
services and help USDA offers to all the people will
enhance man's total environment physically, socially
and aesthetically, for soil erosion affects every one
and shapes the foundation of our environment.
MR. STEIN: Thank you, Mr. Schneider, for
reading that statement.
Maybe this is a good start and an overall
view of the national program,, but I would ask the Con-
ferees to consider that what we need here is some speci-
fics on how we are going to control agricultural run-
off and land runoff, particularly from agriculture into
the lake if this is a problem. We know that this comes
from construction projects and road building, but1 that is
something we will have to meet and I don't know that it
is the charge of this group.
What I would suggest, if the Agriculture
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502
R. J. Schneider
Department says they have the know-how to control sedi-
ment on all land, that we set up a group of the Conferee 5
and representatives where they specifically indicate
areas where we can put this know-how to work as it is
affecting Lake Michigan, with all deference to the great
national program or problems we have in this area, how
it affects Lake Michigan. We should tryto come up with som
specifics that we ask the State agriculture departments
and the Department of Agriculture to work with us on
this and try to get this up. I think we have had the
first go-round on this, but I do think before the Con-
ferees can have something to put their teeth into and
act on we have to get very much more specific because
what we are interested in is stopping the flow of agri-
cultural wastes into Lake Michigan.
Are there any other comments?
MR. KLASSEN: Other than, Mr. Chairman,
to add, and I know you are cognizant of this, this wasn'
mentioned at all in this report and I don't know that
this affects Lake Michigan, it doesn't in Illinois, I
am not familiar enough with northern Indiana or Michigan
or Wisconsin to know whether runoff from cattle feeding
-------
503
R. J. Schneider
lots is a problem for Lake Michigan. It is definitely
a problem that has not been solved and one that the
agricultural people quickly brush under the rug when
you talk to them about it, but there is something that
can be done about this.
But it might not affect Lake Michigan,
so I know you are aware of including this in any study.
MR. STEIN: Yes, we are. And surprisingly
enough, in various areas of the country where we have
got these cattle feeding lots, no one mentioned them as
a problem. When we got out to look at them we found out
that they were a tremendous problem in these areas.
I think that is a very good suggestion, arjd
when we come up with this group they should look at the
extent of the feed lot problem in the Lake Michigan
drainage area. I have no way of knowing whether that is
or is not a problem up here. But increasingly that has
become a significant pollution problem in many areas of
the country.
Are there any other comments or questions?
If not, thank you very much, Mr. Schneidei
May we proceed with the status of waste
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504
M. Garnet
treatment in Federal installations.
Mr. Poston.
MR. POSTON: I will ask Mr. Garnet to
make tHis Statement on Federal installations. And I
understand that Captain Shepard of the Great Lakes Naval
Training Center may wish to comment also on their
particular problems at Great Lakes and possibly Colonel
Warner to comment on Fort Sheridan problems.
And Merrill, at an appropriate time you
might introduce the two.
MR. GAMET: Will do.
MR. STEIN: Merrill is still here? You
know, you have been working in the Government almost as
long as I have.
STATEMENT BY MERRILL GAMET
REGIONAL FEDERAL ACTIVITIES COORDINATION
OFFICE OF FACILITIES PROGRAMS
GREAT LAKES REGION, CHICAGO, ILLINOIS
MR. GAMET: Chairman Stein and Conferees
this will constitute a very brief summary of waste
treatment and disposal at the Federal installations,
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503
M. Garnet
with surface water discharges in the Lake Michigan Basin
More detailed information is contained in a status repor
which has been distributed to the Conferees.
We believe that significant progress has
been made by Federal agencies since the Lake Michigan
Enforcement Conference was held a year ago in the direc-
tion of improvement of waste treatment facilities or
planning to divert wastes out of the Lake Michigan Basin
These are briefly as follows:
U. S. COAST GUARD
1. The Chicago Harbor Station was
closed permanently on December 15* 19&8,
thereby eliminating a source of waste to
Lake Michigan.
2. The Indiana Harbor and Charlevoix,
Michigan Stations have secondary package
treatment plants plus chlorination in opera-
tion.
3. Plans have been formulated to
unman and automate nine Light Stations,
thereby eliminating waste discharges.
4. Plans have been made to unman
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__ _____ 506
M. Garnet
The Racine, Wisconsin Lifeboat Station.
5. Two Coast Guard Cutters,
the SUNDEW, berthed at Charlevoix,
Michigan, and the MESQUITE, berthed at
Sturgeon Bay, Wisconsin, have waste hold-
ing tanks installed with dockside connec-
tions to pump to municipal sewers. These
are in operation at the present time.
U. S. ARMY
1. Plans are in progress to divert
water treatment plant wastes and boiler blow-
down to the sanitary sewer system at Port
Sheridan, and ultimately to connect these
and the entire sanitary sewer system to the
North Shore Sanitary District system for
diversion out of the Lake Michigan Basin. I
will not discuss these proposed projects
further because, as stated, Col. Warner is
here from the headquarters of the Fifth U.S.
Army and he will have a statement to make.
No plans, to our knowledge, are
being made at this time for nutrient removal.
-------
507
M. Garnet
U. S. NAVY
1. Plans are being developed to
divert water treatment plant wastes and
boiler blowdown to the sanitary sewer system
at the Great Lakes Naval Training Center.
Plans are also in progress to divert all
wastes either raw or treated from both the
main sewage treatment plant and the Green
Bay Plant to the North Shore Sanitary Dis-
trict system for discharge out of the Lake
Michigan Basin. Five alternatives are under
consideration. Again, as Mr. Poston announced,
Capt. Shepard is here from the Midwest Division,
Naval Facilities Engineering Command, and
will present a statement about these projects.
2. No progress can be reported
at this time regarding the status of the
proposed project to construct a sanitary
sewer and pump station to transport wastes
from the Naval Reserve Training Center and
the S. S. PARLE, located in the Chicago
Harbor, to the city of Chicago sewer system.
-------
508
M. Garnet
Present information indicates that the
Metropolitan Sanitary District will
advertise for bids in order to determine
more accurately the total cost of the
project. The Navy has allocated $25,000
toward the project cost.
U. S. AIR FORCE
1. Authorization has been granted
for design of a contact stabilization package
treatment plant plus chlorination, nutrient
removal and polishing lagoon at the Empire
Air Force Station, (Leelauau County), Michi-
gan. Anticipated completion of project June
1972.
U. S. DEPARTMENT OF THE INTERIOR
The Bureau of Sport Fisheries and
Wildlife, Charlevoix National Fish Hatchery,
has no plans for waste treatment facilities
since lake water is circulated through fish-
rearing tanks and is considered to be non-
pollutional.
Now, I would like to mention one other
-------
509
M. Garnet
installation about which we have recently obtained
information and was inadvertently omitted from this reporf.
This installation is the Jordan River Fish Hatchery at
Elmira, Michigan.
It is suspected, and is at least partially
borne out by analyses which have recently been made by
our Chicago program office, that this facility is pol-
luting the Jordan River. The indications are that the
concentrations of nitrogen and phosphorus compounds are
in excess of those allowed and, therefore, are in viola-
tion of the Michigan intrastate water quality standards.
However, .just two or three days ago we
received word from the Bureau of Sport Fisheries and
Wildlife that they are making plans to install a settling
basin or lagoon for treatment in order to comply and that
funds are being requested for fiscal year 1971 with
anticipated completion during that fiscal year.
-------
510
by Mr. Garnet:
M. Garnet
(The following is the document submitted
SURFACE WATER DISCHARGES
from
FEDERAL INSTALLATIONS
in the
LAKE MICHIGAN BASIN
FEBRUARY 1969
Legend: S
I
P -
Secondary Waste Discharges
Industrial Waste Discharges
including filter backwash,
boiler blowdown, etc.
Persons
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-------
516
M. Garnet
MR. GAMET: This concludes my brief
statement, and if there are no comments or questions,
I would like to call upon Col. Warner--
MR. STEIN: Let's .just wait a minute, pleas
Are there any comments or questions of
Mr. Garnet?
MR. PURDY: Yes, sir. Mr. Chairman,
could we have the results of the testing made by the
FWPCA at the Jordan River fish hatchery? We have had
a lot of local interest expressed.
MR. GAMET: I don't have them with me here
MR. PURDY: Yes, but I mean--
MR. GAMET: I am sure they can be made
available. They have been submitted to the Bureau of
Sport Fisheries and Wildlife, who requested this study.
MR. STEIN: Why can't we make them availab
to the States?
MR. POSTON: We can.
MR. GAMET: I am sure we can.
MR. STEIN: 0. K.
MR. PURDY: Yes.
MR. STEIN: That will be done.
e.
le
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317
E. B. Warner
Are there any other comments or questions?
If not, thank you.
MR. GAMET: Col. Warner.
STATEMENT BY COLONEL E. B. WARNER
CHIEF, ENGINEERING DIVISION
FIFTH U. S. ARMY, FORT SHERIDAN, ILLINOIS
COL. WARNER: Thank you, Mr. Garnet.
Chairman Stein, Mr. Poston and Conferees.
Mr. Garnet has essentially outlined our
problems, but I might supplement those to a modest degree
by a little more accuracy on our exact status at the
moment.
In the Fifth United States Army we have
four facilities which fall under the purview of the Con-
ference, i.e. or contributing to pollution of the lake.
These are four NIKE sites in the northern Indiana area,
the backwash from the water treatment plant at Fort
Sheridan, the blowdown and steam plant at Fort Sheridan,
and last the sewage plant itself at Fort Sheridan. As
Mr. Garnet indicated, only three of these NIKE sites
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518
E. B. Warner
remain. We have closed one down. In addition, one other
site has been significantly reduced in scope so that it
deals in purely administrative matters now, so it is
much smaller in scope than it was before. The other two
have populations less than 100.
These sites came under the purview of the
Conference in December on the lower Lake Michigan area,
and at that time sites, to the best of our knowledge,
were considered to be in full compliance with the recom-
mendations of that body. We, therefore, concluded that
they meet the requirements of this group.
The border plant blowdown at Port Sheridan
is a very simple project, it is a matter of a 30-foot
sewer line to connect to the Fort Sheridan sewage dis-
posal system. We are all geared up to accomplish this
as soon as the ground thaws and we can get to it. It
is within the purview of our authority; we have the funds
The third problem is the backwash water
from the Fort Sheridan water treatment plant. We cur-
rently have a combination rehabilitation and new construe
tion project which we are trying to implement at the
water plant. The repair portion of this project is
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519
E. B. Warner
i
within our funding and approval authority and we are
proceeding with this portion of the work. The portion
which will correct the backwash water discharged into
Lake Michigan, unfortunately, is in the new construction
portion of the project, which does require congressional
approval. We had it programmed for FY1970 and it was
eliminated from the program by higher headquarters. We
have reprogrammed it for FYi9719 and if it is approved in
this program we will be able to accomplish the work in
1972. This will be one year later than the desired
deadline placed by the body, the Conferees.
The Fort Sheridan sewage plant, our solu-
tion to this, of course, is to discontinue the plant and
divert all Fort Sheridan sewage to the North Shore
Sanitary District. This project also is included in our
FY1971 MCA construction program (Military Construction
Army) which does require Congressional approval. If
approved by Congress and funded, we will expect to get
the funds in time to meet the December 1972 deadline
placed by the Conference on elimination of nutrients from
the lake.
That concludes my report.
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520
E. B. Warner
MR. STEIN: Thank you, Col. Warner.
Are there any comments or questions?
Mr. Klassen.
MR. KLASSEN: I am particularly interested
in Fort Sheridan, Colonel. Are you putting all your
eggs in one basket or are there alternatives if
Congress does not approve the idea of dismantling and
diverting everything to the North Shore Sanitary District
What other alternate plans are you considering, if any?
COL. WARNER: Insofar as nutrient removal,
Mr. Klassen^ we have not--we have our eggs in a single
basket to divert, yes, sir.
MR. KLASSEN: 0. K.
COL. WARNER: Now, to shift gears and
meet the 1972 deadline, we would not be able to--
December 1972 on nutrients, that would involve treatment.
We presently at Fort Sheridan have secondary treatment
with chlorination, but this falls short of the nutrient
removal objective.
MR. KLASSEN: I would say we look very
favorably upon this idea of diverting it, and I hope
that Congress approves this.
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521
E. B. Warner
MR. STEIN: Do you have an agreement with
the North Shore District to take your wastes if the
Congress approves it?
COL. WARNER: Yes, sir.
MR. STEIN: All right.
COL. WARNER: There are several details,
I presume, that are to be ironed out, but in principal
we approached them several years ago on this concept.
MR. STEIN: I just have one other comment
that I was interested in a remark of yours. You said
that one NIKE site became much more limited in scope
since it was devoted to purely administrative functions.
The last one I ever would expect to repeal Parkinson's
Law would be the Army, because we can't do it in Interior
My view is, my experience is, when we devote anything to
administrative functions we increase rather than diminish
the scope.
COL. WARNER: Well, the administrative
functions were there before, Murray. We took away the
operational portion of that site. No administrative
functions were eliminated, I assure you.
(Laughter.)
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522
E. B. Warner
MR. STEIN: Right. Thank you.
MR. KLASSEN: At the risk of .just another
minute here, I read in the Chicago paper last night in
the letters to the editor—and I don't know who this
lady isr-but it is going to make her very happy when she
reads this, because, and I quote, she says, "Why doesn't
my money go for cleaning up the water I swim in? I
cannot sanction giving the military half of my money to
find another way to commit suicide for me."
So this probably will answer her question,
(Laughter.)
MR. STEIN: We have another one.
MR. POSTON: Gapt.Shepard is going to
describe the waste treatment at the Great Lakes Nav»l
Training Center.
STATEMENT BY CAPTAIN G. R. SHEPARD
C.O. MIDWEST DIVISION NAVAL FACILITIES
ENGINEERING COMMAND, GREAT LAKES, ILLINOIS
CAPT. SHEPARD: Mr. Chairman, Conferees.
I appreciate the opportunity to present
-------
G. R. Shepard
on behalf of Admiral Renken, Commandant of the Ninth
Naval District, an up-date on the Navy's statement as
presented to the Four-State Conference about one year
ago.
To review, the Naval Training Center has
two sewage treatment plants, both of which provide secon-
dary treatment. One discharges effluent to the Skokie
Ditch, the other into Lake Michigan. A military construe
tion project has been requested and is currently programmed
for fiscal year 1971. This project provides for repair
and improvements to the existing plant which now dis-
charges the effluent into Lake Michigan. Additionally,
this project includes collection and treatment of wastes
from the water treatment plant and from the heating
plant, which presently, on an independent basis, discharg
into Lake Michigan.
We are also studying different plans of
removing the entire secondary effluent from the main side
plant from Lake Michigan. The concepts we are adopting
here are similar to that which the North Shore Sanitary
District has developed for the surrounding communities.
These choices are:
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524
G. R. Shepard
«
A. To pump raw sewage into the
North Shore Sanitary District system.
B. To pump the treated effluent from
the main side plant into the North Shore
Sanitary District system.
And C. To provide tertiary treat-
ment to the effluent from the main side plant
and then pump directly by our own route to the
Des Plaines River.
The ultimate choice would be based pri-
marily upon the economics of the comparison.
This study should be completed on 31 May
1969, at which time a project will be prepared and sub-
mitted for inclusion as a line item in the fiscal year
1972 military construction program.
At present—and now I am going to move
into the ship area as it affects Lake Michigan—there art
four operating ships and two reserve submarines in the
Lake Michigan area. One operating ship is the USS PARLE
BE-708, home ported at the Naval Reserve Armory, Chicago
A sewage disposal system costing $170,000, for the ship
has been funded and should be installed by April of this
-------
525
G. R. Shepard
year, in about two months. The Navy also has provided
$25*000 as its share of the cost to construct a sewage
collection system on the Monroe Street Harbor Pier.
This is the project that Mr. Garnet stated is having some
funding difficulties at the present time from the other
contributors.
The second operating ship is the USS HAVRf,
PCE-877, home ported at the Naval Training Center, Great
Lakes. The waste from this ship currently discharges
into the Training Center's sanitary system.
The third operating unit is the USS PORTAGE,
PCI±-902, home ported in Milwaukee. Funds have been
requested to provide a ship collection system and it
is expected that this project will be funded with Fiscal
Year 1970 funds. The project for the shore collection
sewage system has been submitted also for Fiscal year
1970 funding. We presently are in Fiscal Year 1970.
The fourth operating unit is the USS ELY,IJCE-880,
home ported at Sheboygan. Funds have been requested to
provide a ship collection system and it is expected that
this project will be funded with Fiscal Year 1970 funds.
The project for the shore collection system will be
-------
526
G. R. Shepard
submitted for fiscal year 1971 funding.
There are two reserve submarines, USS SILV
, home ported in Chicago, and the USS COBIA^QES-2^-5
home ported in Milwaukee. There are no provisions for
sewage disposal for these craft, inasmuch as they pose
no problem because they are non-operating. They are
continually alongside the pier where shoreside facilities
are available.
I think it will be of interest to this
group to be informed regarding the latest action that
the Navy has taken with regard to shipboard sewage
disposal systems. Quite a bit of research has been done
on this, and I will read this statement.
A complete sewage disposal unit has been
installed on the USS FISK, which is a destroyer which
has been operating on the East Coast. It has been
operating for over one year. The results of this proto-
type installation have been excellent as far as the
principle of operation is concerned. However, there
have been numerous mechanical problems which have
rendered the reliability of the operation somewhat
questionable. However, changes in design are being
ER-
-------
527
G. R. Shepard
incorporated and it still remains the best hope for a
complete underway sewage system. This, of course, will
have application to craft and ships operating on the
Great Lakes, particularly on Lake Michigan here, when
they are out of port.
The Navy's ships system command is buying
eight of these revised units and will install them on a
subtender for further testing. We expect that this test-
ing will begin in 1970. The ship systems command also
is embarked on a cause and effect study to be completed
in May to determine the most advantageous method of
handling wastes. In this case we are speaking of this
for larger vessels, and the comparison is whether it
should be by onboard disposal or by holding tanks. ¥e
will have the results from this about midyear, and fol-
lowing the conclusions which will be derived, an applica-
tion for appropriations for conversions of various Navy
ships will be submitted.
Mr. Chairman, this concludes my presen-
tation.
-------
528
G. R. Shepard
(The following is the document submitted
by Capt. Shepard:)
CAPTAIN SHEPARD'S STATEMENT
FOUR-STATE CONFERENCE
25 February 1969
Mr. Chairman, Conferees, ladies and
gentlemen.
I appreciate the opportunity to present on
behalf of Admiral H. A. Renken, Commandant of the Ninth
Naval District, an up-date of the Navy's statement as
presented at the Four-State Conference held on 31 January
1968.
To review, the Naval Training Center, Grea
Lakes, has two sewage treatment plants, both of which
provide secondary treatment. One discharges effluent to
the Skokie Ditch, the other discharges effluent into Lake
Michigan. A military construction pro.ject has been
requested and is currently programmed for Fiscal Year
1971. This provides for improvements to the existing
plant which now discharges effluent into Lake Michigan.
-------
529
G. R. Shepard
Additionally, this pro.ject includes collection and
treatment of wastes from the water treatment and heating
plants presently discharging into Lake Michigan.
We are also studying different plans of
removing the entire secondary effluent from the main side
plant from Lake Michigan. These include:
A. Pumping raw sewage into the
North Shore Sanitary District system.
B. Pumping the treated effluent
from the main side plant into the North
Shore Sanitary District system.
C. Providing tertiary treatment
to the effluent from the main side plant
and pumping to the Des Plaines River.
This study should be completed by 31 May
1969 at which time a project will be prepared and submit"!
for inclusion as a line item in the 1972 military constri
tion program.
At present there are four operating ships
and two reserve submarines in the Lake Michigan area.
One operating ship is the USS PARLE, DE-708, home ported
at the Naval Reserve Armory, Chicago. A sewage disposal
ed
c-
-------
530
G. R. Shepard
system costing $170,000, for the ship has been funded
and should be installed by April 1969. Twenty-five
thousand dollars has been provided as the Navy's share
of the cost to construct a sewage collection system on
the Monroe Street Harbor Pier.
The second operating ship is the USS
HAVRE, PCE-877, home ported at the Naval Training Center,
Great Lakes. The waste from this ship currently discharge
into the Center's sanitary system.
The third operating unit is the USS
PORTAGE, PCE-902, home ported at Milwaukee. Funds have
been requested to provide a ship collection system and
it is expected that this project will be funded with
fiscal year 1970 funds. The project for the shore col-
lection sewage system has been submitted for fiscal year
1970 funding.
The fourth operating unit is the USS ELY,
PCE-880, home ported at Sheboygan. Funds have been
requested to provide a ship collection system and it is
expected that this project will be funded with fiscal
year 1970 funds. The project for the shore collection
sewage system will be submitted for fiscal year 1971
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331
G. R. Shepard
funding.
The two reserve submarines, USS SILVERSID^S
AGSS-236, home ported in Chicago, and the USS COBIA,
AGSS-245,, home ported in Milwaukee, have no provision
for sewage disposal. However, they pose no problem as
they are non-operating and pier side facilities are avai]
able.
In conclusion I would like to state that
it has been and it will continue to be our policy to
cooperate with the PWPCA, State and local government
agencies with regard to water pollution matters.
Copies of this presentation have been mad*
available for the record.
MR. STEIN: What do you mean by onboard
disposal or holding tanks?
CAPT. SHEPARD: Well, the onboard disposa
that I referred to would be a device, primarily an incin
eration device.
MR. STEIN: Oh, I see.
CAPT. SHEPARD: Yes, sir.
MR. STEIN: All right. In other words,
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332
G. R. Shepard
either alternative would meet the Conference recommenda-
tions that no waste is being discharged overboard,
treated or untreated?
CAPT. SHEPARD: Yes, sir.
MR. STEIN: All right.
CAPT. SHEPARD: The onboard disposal
system would be the same thing that I referred to as beir
aboard the FISK and being tested.
MR. STEIN: All right. Thank you very
much .
Are there any other questions or comments?
If not, thank you very much, Captain.
We will now go on. And the reason we are
pursuing this so hard, and I hope you will bear with us,
we are having only, hopefully, one intermission. We
will try to hit two more items, just to tell you what is
going on, so we can try to get through today and enable
the Conferees to meet their other commitments.
We will take "uniform regulations to con-
trol wastes from vyatercraft," and this is Recommendation
No. 13 of the Conferees. I believe Mr. Klassen has that
Mr. Klassen.
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533
C. W. Klassen
STATEMENT OF CLARENCE KLASSEN, CHAIRMAN
COMMITTEE ON UNIFORM RULES AND REGULATIONS
TO CONTROL WASTES FROM WATERCRAFT
(REGULATION 13)
MR. KLASSEN: Mr. Chairman, the Committee
met and recommended a unanimously-approved set of rules
and regulations or legislation, whichever it takes. The
Conferees approved this March 2, 1968.
Very briefly, this provides that no marine
toilet on any watercraft discharge wastes directly or
indirectly unless the sewage has been rendered non-
pollutional by passage through a device approved by the
Department or whatever agency it is in the State. And
the other amplifies this.
The control devices that are acceptable
for the purposes of this act.are holding tank, incinera-
ting devices, ashes to be disposed of, I am sure, not in
the water, or any other device determined by the Depart-
ment or agency to be effective in preventing pollution
from marine toilets. This act as suggested here has been
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534
C. W. Klassen
passed by the State of Michigan. The Illinois Sanitary
Water Board adopted these as rules and regulations
effective--the date that it was adopted was July 2,
effective January 1970. Michigan also adopted this.
Wisconsin, we have heard, has this proposal ready, I
understand, to send to the Legislature. And Indiana,
we have heard this morning, has the legislation necessarj
passed both Houses and on the desk of the Governor for
approval.
There is one point. Mr. Miller, I don't
know whether I misunderstood you or not. The effective
date of this as agreed upon by all of the States was
January 1, 1970, and I realize you cannot commit a State
Legislature, but did I understand you correctly that the
effective date was January 1971 instead of 1970?
MR. POOLE: That is correct. That was
a concession to include cargo-carrying vessels as well
as pleasure craft. That covers all vessels.
MR. KLASSEN: I might say also in that
respect, the uniform act that was recommended and
approved by the Conferees excepted vessels engaged in
interstate commerce and vessels of foreign registry.
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534a
PROPOSED ACT
(or Rules and Regulations)
FOR THE DISPOSAL OF SEWAGE FROM MARINE TOILETS
, Developed by Subcommittee on "Wastes from Watercraft" - Lake Michigan -
Four State Enforcement Conference. Approved by All Conferees, March 2, 1968.
AN ACT (or Rules and Regulations) to regulate the disposal of sewage from
watercraft.
1.0 DEFINITIONS
For purposes of this Act (or Rules and Regulations), unless the context clearly
requires a different meaning:
1.1 "V/atercraft" includes every description of watercraft, other than a
seaplane, on the water, used or capable of being used as a means of
transportation on water, except vessels engaged in Interstate Commerce and
vessels of foreign registry.
1.2 "Sewage" means all human body wastes.
1.3 "Litter" means bottles, glass, crockery, cans, scrap metal, junk, paper,
garbage, rubbish, plastic, or similar refuse discarded as no longer
useful or useable (or use definition in own state boating law).
}.k "Marine Toilet" means any toilet on or within any watercraft.
1.5 "Waters of the State" means all of the waterways on which watercraft shall
be used or operated (or state definition).
1.6 "Person" means an individual, partnership, firm, corporation, association,
or other entity (or state definition).
1.7 "Owner" means the person who has lawful possession of a boat by virtue of
legal title or equitable interest therein which entitles him to such
possession (or state definition).
1.8 "Department" means the ....(name of the State agency which shall
administer this Act).
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534b
-2-
2.0 LITTERING OR POLLUTING WATER - RESTRICTIONS
Restrictions on placing, throwing, depositing or discharging litter
into waters of this State are contained in .... (refer to appropriate
State Act or Rules and Regulations).
3.0 MARINE TOILETS - RESTRICTIONS
3.1 No marine toilet on any watercraft used or operated upon waters of
this State shall be operated so as to discharge sewage into said
waters, directly or indirectly, unless the sewage has been rendered
non-pollutional by passage through a device approved by the Depart-
ment (or .... name of State Water Pollution Control Agency if
Department and said agency are not the same).
3.2 No person owning or operating 3 watercraft with a marine toilet
shall use, or permit the use of, such toilet on the waters of this
State, unless the toilet is equipped with facilities that wi11
treat, hold, incinerate or otherwise handle sewage in a manner
capable of preventing water pollution.
3-3 No person shall dispose of sewage, accumulated in a holding tank or
any other container on a watercraft, in such manner that the sev/age
reaches or may reach the waters of this State, except through a
sewage disposal facility approved by the Department (or .... name
of Stale V/ater Pollution Control Agency if Department and said
agency are not the same).
k.O MARINE TOILETS - POLLUTION CONTROL DEVICES
*».1 After the effective date of this Act, every marine toilet on water-
craft used or operated upon waters of this State shall be equipped
with a pollution control device in operating condition approved by
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534c
"3-
the Department (or .... name of State Water Pollution Control Agency if
Department and said agency are not the same).
*t.2 Pollution control devices that are acceptable for purposes of this Act
are:
A.21 Holding tanks which retain toilet wastes for proper disposal
pursuant to Rule 3.3.
Jj.22 Incinerating devices v/hich will reduce to ash all sev/age and
toilet wastes produced on the watercraft. Ash is to be disposed
of on shore - not to waters of the State.
A.23 Any other device determined by the Department (or agency) to be
effective in preventing pollution from marine toilets.
5.0 ENFORCEMENT
(Refer to enforcement authority of State Boating Act). (or Pollution Control
Act).
6.0 EFFECTIVE DATE
The provisions of this Act with reference to requiring watercraft with toilet
facilities to be equipped with pollution control devices shall take effect
January 1, 1970.
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535
C. ¥. Klassen
The Illinois Sanitary Water Board did not include that.
They are including all vessels and thought that if some-
one wanted to question their .jurisdiction, this is some-
thing that they could do.
But other than this date by Indiana,and
hopefully Wisconsin will have the 1970, this constitutes
our report, Mr. Chairman, I think a real step forward.
MR. STEIN: So do I.
Are there any comments or questions on
this?
By the way, I think this is one of the
real accomplishments of the Conferees—-to get uniform
boat control legislation for control of wastes from the
boats on Lake Michigan. I think the Conferees have or
should be given the credit of these four States for
doing this, '. I do think that they set a precedent,
because I think the Lake Erie States have followed suit
and they have adopted about the same regulations. But
the Lake Michigan States were one of the first.
And Mr. Klassen, I am glad to see that
you act uniformly all the way. You are not .just picking
on us on jurisdiction; you are ready to take this
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536
C. W. Klassen
jurisdiction question on on all the fronts.
Thank you.
MR. KLASSEN: We have not accepted any
jurisdictional questions that haven't been offered to
us. (Laughter.)
MR. STEIN: Right.
You know, that is my philosophy too.
I always accept the full .jurisdiction. I figure if
anyone is going to cut us down, let the Court do
it.
All right, now we go on. The next one
will be nuclear discharges and thermal pollution, report
of the Committee, and this deals with Recommendation No.
10.
Mr. Poston, who is handling that?
MR. POSTON: Mr. Kittrell is the Chairman
of this Committee and he will give a summary of his
report.
Mr. Kittrell.
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537
P. W. Kittrell
STATEMENT OF F. W. KITTRELL, CHAIRMAN
COMMITTEE ON NUCLEAR POWEfl PLANT WASTE DISPOSAL
(RECOMMENDATION 10)
MR. KITTRELL: Gentlemen, our Committee
came up with a 50-page, typewritten, single-spaced report
I had planned to read that today, but at the urgent plea
of several of the Conferees I am merely going to read
the introduction, the summary and conclusions of that
report. I would like to enter the full report in the
record.
MR. STEIN: The report will be included
in the record as if read without objection.
MR. KITTRELL: Introduction.
A Conference on pollution of Lake Michigan
and its tributary basin (Wisconsin-Illinois-Indiana-
Michigan), requested by Governor Otto Kerner of Illinois
and called toy Secretary of the Interior, Stuart L. Udall,
was held in Chicago, Illinois, on January 31* February
1-2, February 5-7, March 7-8,and March 12, 1968.
Among problems discussed by the Conferees
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538
F. W. Kittrell
was the disposal of waste radioactive material and heat
from nuclear powey plants scheduled to be located on
the shores of Lake Michigan within the next five years.
They concluded that insufficient information was avail-
able to them at that time to judge the potential effects
of these wastes on water quality of Lake Michigan.
The Conferees tenth recommendation, among
a total of twenty-six, was:
"The States and the Department of the
Interior will appoint members of a special committee on
nuclear discharges and the thermal pollution aspects of
power plants and reactors. The committee will meet with
representatives of the Atomic Energy Commission and othei
interested parties to develop guidelines for pollution
control from nuclear power plants. The committee is to
pay special attention to thermal discharges which affect
the aquatic life environment of the lake. Representative
of the committee will be available to appear before any
Federal or State agency considering approval of a permit
for such power plants and reactors."
Members of the committee appointed by
the Conferees are:
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539
F. ¥. Kittrell
F. W. Kittrell, Chairman,, Public
Health Engineer, Federal Water Pollution
Control Administration;
C. T. Blomgren, Sanitary Engineer,
Illinois State Sanitary Water Board;
L. E. Stratton, Sanitary Engineer,
Illinois State Sanitary Water Board;
H. C. Briggs, Sanitary Engineer,
Indiana State Board of Health;
J. R. McKersie, Sanitary Engineer,
Wisconsin Department of Natural Resources;
J. G. Robinson, Aquatic Biologist,
Michigan Water Resources Commission.
Two members of the Committee, Messrs.
Briggs and Stratton, have specialized in radiological
health. A third, Mr. Robinson, has specialized in
aquatic biology. The other three members have had
general experience in sanitary engineering and water
resources. Clifford Risley, Jr., Chemist, FWPCA,
served as non-voting Secretary of the Committee, with
W. L. Abbott, Chemist, as his alternate.
The Committee first met, for organizational
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540
F. W. Kittrell
purposes, on May 27, 1968. It has met in seven two-day
and one one-day work sessions since that time.
Valuable contributions have been made by
the following agencies, which provided speakers on nucleajr
power plants and on effects and control of their wastes:
Atomic Energy Commission, Chicago
Operations Office;
Commonwealth Edison Company,
Chicago Office;
Federal Water Pollution Control
Administration, Division of Technical Services;
U. S. Public Health Service, Nuclear
Facilities Section.
The Atomic Energy Commission and Public
Health Service speakers dealt primarily with radioactive
wastes. The Commonwealth Edison speakers presented the
results of a single field study of thermal wastes from
the company's Waukegan fossil fuel plant that included
temperature and biological effects on the lake, and
described plans for disposal of wastes from the company's
Zion nuclear power plant. FWPCA representatives provided
information on heat losses from power plants, effects of
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341
F. W. Kittrell
thermal discharges on aquatic life, and consultation on
radiological wastes.
Committee members also have discussed the
problems involved with knowledgeable individuals, attendejd
National meetings on thermal pollution and reviewed much
literature on the subject.
Although isolated cases of thermal pollu-
tion have been recognized for many years, only recently
has concern over the problem become widespread. This
concern has developed because of the increase in thermal
power production, which is doubling approximately every
ten years, using both nuclear and fossil fuel, and becaus
of the increasing capacity of individual power plants.
Because of relatively limited attention
to thermal pollution in the past, there are few experts
in the disposal of waste heat and many gaps in knowledge
of behavior of waste heat in receiving waters, of its
effects on water quality and uses, and of the most
efficient and economical methods of disposal without
damage to the aquatic environment. For example, methods
of calculating the patterns that will be assumed in lake
waters by heated water discharges, and the rates of
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F. W. Kittrell
cooling that may be anticipated in the receiving waters
are in the developmental stage. Much additional researct
will be necessary before it will be possible to predict
with assurance what heating water will do when dischargee
bo a lake.
Liquid radioactive wastes, on the other
hand, have received a great deal of publicity and
attention, and means for the effective treatment and
acceptable disposal of them are well known. Of all the
radionuclides that are most likely to be constituents
of the liquid wastes, only tritium is not directly
amenable to removal by accepted methods of treatment
such as evaporation or demineralization. This is because
tritium is a "heavy" hydrogen atom, and exists therefore
as an integral part of the water molecule. Estimated
quantities (activity and volume) of liquid radioactive
wastes from the typical large nuclear plant are based on
a limited amount of operating experience since the use
of such plants is a relatively recent development.
Summary and conclusions. Following the
Conference on pollution of Lake Michigan and its
tributary basin in early 1968, a Committee was formed
-------
F. W. Kittrell
by the Conferees to consider the disposal of thermal and
radioactive wastes from nuclear power plants to be
located on Lake Michigan.
One existing and six proposed nuclear
power plants with an electrical production capacity of
7,100,000 kilowatts will be in operation on the shores
of Lake Michigan within the next decade, with all but
one scheduled for completion by 1973- This proposed
capacity probably will be only a little less than the
estimated 7,700,000 kwe existing fossil fuel power plant
capacity.
Since the turn of the century, thermal
power plant production throughout the Nation has approxi-
mately doubled every 10 years. It is anticipated that
the availability of a large source of cooling water in
Lake Michigan and the expanding industries on its shores
will support an even greater increase in power production
in this area than the national average. Most of the
increased capacity probably will be in nuclear power
plants.
The AEG predicts that there will be need
for an additional 6,000,000 ki-lowatts of electrical
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344
F. W. Kittrell
capacity on Lake Michigan by 1980.
Existing fossil fuel plants operating at
full capacity discharge an estimated 300,000 billion
BTtJ's per year in cooling water to the lake. Nuclear
reactor power plants discharge 40 to 50 percent more
waste heat per unit of electrical production to the
cooling water than do fossil fuel plants, and it is
estimated that the seven nuclear plants when in full
operation will discharge 388,000 billion BTU's per year
to the lake. If all plants,, both existing and proposed,
operated at full capacity for a year, and if there were
no reduction of the added heat through evaporative cool-
ing and other means, and assuming complete mixing of the
entire lake, the temperature of the lake would be raised
a little more than 0.06°F annually.
The foregoing calculation assumes no
reduction in the heat of the cooling water added to the
lake, but actually there will be much reduction through
evaporation, radiation and other means. There will, how-
ever, be a residual of the added heat that will be cumu-
lative until an equilibrium is reached at a somewhat
higher temperature than that due to natural causes. It
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343
F. W. Kittrell
is estimated that with an average annual temperature of
50°F. for the lake the added heat would raise the average
annual temperature at equilibrium by 0.05°F. to 50.05°F.
With increasing power production and no off-lake cooling,
it is estimated the average annual temperature would be
increased by 0.4°F. in the year 2000, and by 2.0°F. in
2023. This increase would nullify a 2.0°F. decrease in
average annual temperature of the lake that has occurred,
apparently from natural causes, in the past 100 years.
These conservative calculations indicate
that there is minimum need for immediate concern over the
effect of temperature on the lake as a whole. The probable
long-range effect deserves consideration.
Possible local effects of increased
temperature on aquatic life, including fish, are cause
for more immediate concern than the effect on the lake
as a whole. Fish and the aquatic organisms that serve
as their food are particularly sensitive to variations
in seasonal temperature during reproductive and .juvenile
stages. For example, abnormally high temperatures during
the spawning and hatching season may completely upset
the normal reproductive cycle of fish and thus limit or
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P. W. Kittrell
prevent their production. It also is possible that
increased temperature of lake water locally may stimulat
undesirable growths of plankton and filamentous algae,
and lead to production of nuisances.
Of the four States bordering the lake,
Illinois and Indiana have temperature standards, approved
by the Secretary of the Interior,that require that the
maximum temperature of Lake Michigan water not exceed
85°P. after reasonable allowance for mixing. The Wis-
consin standard also approved by the Secretary allows up
to 89°F. after mixing, at the shoreline and in harbor
waters. Some, but not all, of these standards also include
various provisions limiting rates of temperature increase
and increases over natural temperature. The Michigan
standard, which has not been approved by the Secretary,
establishes no numerical limits, but is a general state-
ment designed to abate or prevent injury of any kind due
to temperature to any type of water use or value.
All four States grant approval for the
nuclear power plants with the understanding that require •
ments may be revised if experience proves the need for
revision.
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547
F. W. Kittrell
i
Most of the plants propose to draw cooling
water from some distance out in the lake where the tempera
ture only infrequently will be above 65°F. Thus the
temperature of the cooling water can be increased a
reasonable amount without exceeding the standards for
the lake water. Most of the plants propose to discharge
the cooling water through channels ending at the shore-
line; though one (Zion, in Illinois) plans to discharge
through a dispersion device about 700 feet from shore.
Discharge velocity at the shoreline of two to four feet
per second will tend to float the warm water on the lake
surface with a minimum of mixing. This will allow
cooling from evaporation and radiation, and minimum
addition of heat to the lake water, but will permit
maximum temperature of the floating heated water mass
before cooling. Since such discharges generally tend
to travel up or down the shoreline rather than out into
the lake, the greatest damage to aquatic life along the
shore could result from this method.
Large quantities of cooling water are
required by nuclear power plants. The Zion plant, for
example, will use an annual average of 2,9^0 cfs, with
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548
F. W. Kittrell
a maximum of 3j400 cfs in summer. If all plants
anticipated by 1980 used cooling water at the same
rate as Zion, the cooling water use by then could
average 17,500 cfs, with a maximum of 20,000 cfs in
summer. If evaporative cooling towers had to be used
for all of this water and there were a two percent loss
of water by evaporation, the total water evaporated
would be 400 cfs in summer. If power production con-
tinued to double and evaporative cooling towers were
used for all cooling water, the rate of evaporation by
the year 2000 could be 1,600 cfs.
Dry cooling towers are feasible but less
efficient and more costly than evaporative cooling towers
The alternatives for disposal of cooling
water, and their protential advantages and disadvantages
appear to be:
1. Use of evaporative cooling towers
and other off-lake cooling devices. Least
thermal effect on lake water quality and uses.
Maximum diversion of lake water by evaporation.
2. High velocity dispersion through
submerged devices well out into lake. Minimal
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F. W. Kittrell
immediate thermal effect on water quality
and uses; but maximum addition of heat and
increase in lake temperature on long-term
basis. Minimum evaporation of heated water.
3- Low velocity discharge to
surface at shoreline to float v/ater on sur-
face. Maximum potential for damage to aquatic
life along the shoreline. More diversion of
lake water by evaporation than high velocity
dispersion and mixing; but less addition of
heat to lake on long-term basis.
Unfortunately, the present state of the
art does not allow quantitative estimates of the various
potential effects of heated waste discharges on a body of
water as complex as Lake Michigan.
Much can be learned of effects of heat
on lake water by investigations of aquatic life in the
vicinity of existing fossil fuel power plants.
Radionuclides are produced in reactors by
both fission of nuclear material and by neutron activation
of reactor materials, of minerals in the water used as
a coolant to produce steam, and of the hydrogen of the
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F. W. Ki'ttrell
•
water itself. The nuclides thus produced find their way
into the waste stream through leaks in various types of
equipment and from the laboratory and laundry.
Treatment by detention and decay, sedi-
mentation, filtration, evaporation and demineralization
reduces all radionuclides except tritium to very low
levels. Tritium is radioactive hydrogen that is incor-
porated in the water, and is not removed by any of the
treatment processes. Fortunately, tritium is one of the
least hazardous of all radionuclides, and has one of the
highest maximum allowable limits in drinking water
_ o
(3 x 10 ^uc/ml). Estimated discharge of all radionuclide
except tritium, from all proposed nuclear power plants
totals less than one curie per year. Experience at four
of six relatively small plants already in operation, how-
ever, has shown discharge of radionuclides ranging from
1.3 to 11.1 curies per year. Tritium discharged by the
six plants ranged from five to 1,300 curies per year.
The radioactive wastes of the six plants, after treatment
were in volumes ranging from 208 to 4,820 gallons per day
The treated radioactive wastes will be
diluted in the large volumes of cooling water for final
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F. W. Kittrell
disposal to the lake. Discharge will be by batches after
each batch has been sampled and analyzed. Dilution in
the cooling water is estimated to bring the radionuclide
concentrations, including tritium, down to 10 to 20 per-
cent of the permissible limits specified in the Atomic
Energy Commission's 10CFR20 regulations. The States
standards generally require that radionuclide concentra-
tions comply with the Public Health Service Drinking
Water Standards. Compliance with the AEG 10CFR20 regu-
lations will ensure compliance with the PHS Drinking
Water Standards.
A basis for evaluation of the possible
effect on the lake as a whole is that 490,000 curies of
radioactivity would have to be present to give a concen-
tration--
MR. STEIN: Do you mean four hundred
ninety or forty-nine thousand?
MR. KITTRELL: Four hundred ninety thousanjd
MR. POOLE: The report says 4-9,000, Kit.
I looked it up last night.
MR. KITTRELL: The report says 490,000.
MR. POOLE: It can't be 490,000 10"8 and
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F. W. Kittrell
490,000 io~7.
MR. KITTRELL: That would be 49,000, then,
I guess. I have this written report right here, if you
want me to take a minute to look it up. You say how mud
MR. POOLE: Last night I looked in the
report and it is 49,000 of 10 to the minus 8.
MR. STEIN: That is what it says here,
49,000 of 10~B and 490,000 of 10 to the "7.
You know, you guys .just--
MR. KITTRELL: It should be 49,000, then.
-8
MR. STEIN: 49,000 of 10- . You still
insist on using these factors that require advanced
mathematics to understand. I can't see what that adds
to a whole number, but they persist in doing that. And
here we come up with a difference of a magnitude of ten
in two lines when you are dealing with the same figure
when one is to the minus eight,ten to the minus eight, and
the other is ten to the minus seven.
Kit, I know this isn't you, but I can say
for a fellow who is working for the past years with the
Committee on Radiation Protection from the beginning, I
cease to be amused by this game that they play with this
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F. W. Kittrell
minus eight, minus seven and minus three to confuse
everyone with the numbers. Why can't you come out with
a straight number on this so people can follow it?
By the way, this is not directed at you.
MR. KITTRELL: Well, I agree with you,
Murray. It took me quite a long time to get accustomed
to it.
MR. STEIN: I know.
MR. KITTRELL: Ten to the minus so on and so
forth. But on the other hand, I think .0000008 might be
almost as confusing.
But anyhow, let me start this sentence
over again.
A basis for evaluation of the possible
effect on the lake as a whole is that 49,000 curies of
radioactivity would have to be present to give a concen-
-8
tration of 10 uc/ml (10 percent of permissible level),
-7
or 490,000 curies for a concentration of 10 jic/ml.
Nearly 1.5 billion curies of tritium would be required
to equal the permissible concentration for this radio-
nuclide in the lake. There is no cause for concern for
the effects of radioactive wastes on the lake as a whole
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F. W. Kittrell
i
There is a possibility of concentration
of radioactivity locally in the aquatic life that serves
as the food chain for fish, with a potential hazard to
those who eat fish from the lake. Experience with wastes
from smaller nuclear power plants discharging to streams
in Illinois and Wisconsin and to the lake in Michigan
has not revealed such a problem, but it is one that must
be evaluated when the larger plants go into operation on
the lake.
The policy of AEG and the States that
radioactive wastes in the environment must be kept to
the lowest practical level requires that radioactive dis-
charges from the nuclear power plants be held to the
minimum feasible quantities.
Review of available literature, attendance;
at national symposia on thermal pollution, and discussior
with various consultants in the field have revealed many
gaps in knowledge of the effects of thermal wastes on
water quality and uses and of preferable means of dis-
posal. There is an urgent need for investigation,
especially biological, of the effects on Lake Michigan
of heated wastes discharged from existing fossil fuel
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F. W. Kittrell
»
power plants.
There also is a need for acquisition of
data on present water quality and aquatic life in the
vicinities of the proposed nuclear power plants to pro-
vide a basis for evaluation of effects of the wastes
after the plants go into operation. Various power
companies and consultants and Federal and State agencies
presently are making more or less independent investiga-
tions. All of these investigations should be coordinatec
to the maximum extent possible.
RECOMMENDATIONS
It is recommended that:
1. All power plants, both nuclear and
fossil fuel, meet the waste disposal requirements and
water quality standards of the States in which they are
situated.
2. Design personnel for all future power
plants consider or evaluate the possible subsequent
addition of off-lake cooling devices, extended cooling
water effluent lines with submerged, high velocity dis-
charges, and other methods of controlling effects of
thermal wastes on the lake so 'that such devices can be
-------
556
P. ¥. Kittrell
added if found to be necessary.
3. Radioactive liquid wastes discharges
to the lake be kept to the minimum feasible.
4. Individual States ensure that adequate
base line data on water quality and aquatic life be
obtained at all proposed power plant sites, and that
adequate post-operational monitoring be provided, and
results be made available to all parties concerned.
5. Coordinated study of the thermal
effects on water quality and aquatic life of one or more
fossil fuel plants now discharging cooling water to Lake
Michigan, and of various methods of cooling water dis-
persion be undertaken by FWPCA.
6. FWPCA coordinate a comprehensive study
of the effects on water quality and aquatic life of
thermal wastes from a large nuclear power plant on Lake
Michigan, with attention to various methods of cooling
water dispersion.
7. FWPCA coordinate a study of the effect
on water quality and uses of radioactive wastes from a
large nuclear power plant on Lake Michigan, with especial,
attention to the concentration of radionuclides in aquati
-------
F. W. Kittrell
life.
8. The Atomic Energy Commission be reques
to coordinate the development of a plan for the State
agencies, the FWPCA, the U. S. Public Health Service, and
other appropriate agencies, for emergency methods to deal
with accidental radioactive releases (gaseous as well as
liquid) on Lake Michigan, including an inventory of
appropriate laboratory and evaluation resources.
(The following is the document submitted
by Mr. Kittrell:)
REPORT
of the
COMMITTEE ON NUCLEAR POWER PLANT WASTE DISPOSAL
to the
CONFEREES OF THE LAKE MICHIGAN ENFORCEMENT CONFERENCE
NOVEMBER 1968
INTRODUCTION
A Conference on pollution of Lake Michiga
and its tributary basin (Wisconsin-Illinois-Indiana-
Michigan), requested by Governor Otto Kerner of Illinois
ted
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F. W. Kittrell
and called by Secretary of the Interior, Stuart L. Udall,
was held in Chicago, Illinois, on January 31, February
1-2, February 5-7, March 7-8,and March 12, 1968.
Among problems discussed by the Conferees
was the disposal of waste radioactive material and heat
from nuclear power plants scheduled to be located on the
shores of Lake Michigan within the next five years. They
concluded that insufficient information was available to
them at that time to .1udge the potential effects of these
wastes on water quality of Lake Michigan.
The Conferees' tenth recommendation, among
a total of twenty-six, was:
"The States and the Department of the
Interior will appoint members of a special committee on
nuclear discharges and the thermal pollution aspects of
power plants and reactors. The committee will meet with
representatives of the Atomic Energy Commission and othei
interested parties to develop guidelines for pollution
control from nuclear power plants. The committee is to
pay special attention to thermal discharges which affect
the aquatic life environment of the lake. Representative
of the committee will be available to appear before any
-------
F. W. Kittrell
Federal or State agency considering approval of a permit
for such power plants and reactors."
Members of the committee appointed by the
Conferees are:
F. W. Kittrell, Chairman, Public
Health Engineer, Federal Water Pollution
Control Administration;
C. T. Blomgren, Sanitary Engineer,
Illinois State Sanitary Water Board]
L. E. Stratton, Sanitary Engineer,
Illinois State Sanitary Water Board;
H. C. Briggs, Sanitary Engineer,
Indiana State Board of Health;
J. R. McKersie, Sanitary Engineer,
Wisconsin Department of Natural Resources;
J. G. Robinson, Aquatic Biologist,
Michigan Water Resources Commission.
Two members of the Committee, Messrs.
Briggs and Stratton, have specialized in radiological
health. A third, Mr. Robinson, has specialized in aquati
biology. The other three members have had general
experience in sanitary engineering and water resources.
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560
F. W. Kittrell
Clifford Risley, Jr., Chemist, FWPCA, served as non-
voting Secretary of the Committee, with W. L. Abbott,
Chemist, as his alternate.
The Committee first met, for organizational
purposes, on May 27, 1968. It has met in seven two-day
and one one-day work sessions since that time.
Valuable contributions have been made by
the following agencies, which provided speakers on nuclear
power plants and on effects and control of their wastes:
Atomic Energy Commission, Chicago
Operations Office.
Commonwealth Edison Company,
Chicago Office.
Federal Water Pollution Control
Administration, Division of Technical Services.
U. S. Public Health Service,
Nuclear Facilities Section.
The Atomic Energy Commission and Public
Health Service speakers dealt primarily with radioactive
wastes. The Commonwealth Edison speakers presented the
results of a single field study of thermal wastes from
the company's Waukegan fossil fuel plant that included
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561
F. W. Kittrell
temperature and biological effects on the lake, and
described plans for disposal of wastes from the company1
Zion nuclear power plant. FWPCA representatives providec
information on heat losses from power plants, effects of
thermal discharges on aquatic life, and consultation on
radiological wastes.
Committee members also have discussed the
problems involved with knowledgeable individuals,
attended national meetings on thermal pollution, and
reviewed much literature on the subject.
Although isolated cases of thermal pol-
lution have been recognized for many years, only recently
has concern over the problem become widespread. This
concern has developed because of increase in thermal
power production, which is doubling approximately every
ten years, using both nuclear and fossil fuel, and
because of the increasing capacity of individual power
plants.
Because of relatively limited attention
to thermal pollution in the past, there are few experts
in the disposal of waste heat and many gaps in knowledge
of behavior of waste heat in receiving waters, of its
-------
562
F. W. Kittrell
effects on water quality and uses, and of the most
efficient and economical methods of disposal without
damage to the aquatic environment. For example, methods
of calculating the patterns that will be assumed in lake
waters by heated water discharges, and the rates of cool-
ing that may be anticipated in the receiving waters are
in the developmental stage. Much additional research
will be necessary before it will be possible to predict
with assurance what heated water will do when discharged
to a lake.
Liquid radioactive wastes, on the other
hand, have received a great deal of publicity and attenti
and means for the effective treatment and acceptable
disposal of them are well known. Of all the radionuclide
that are most likely to be constituents of the liquid
wastes, only tritium is not directly amenable to removal
by accepted methods of treatment such as evaporation
or demineralization. This is because tritium is a "heavj
hydrogen atom, and exists therefore as an integral part
of the water molecule. Estimated quantities (activity
and volume) of liquid radioactive wastes from the typi-
cal large nuclear plant are based on a limited amount of
on,
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363
F. ¥. KIttrell
operating experience since the use of such plants is a
relatively recent development.
LAKE MICHIGAN
The Lake
Lake Michigan (Figure 1) is the sixth
largest fresh-water lake on earth, with a surface area
of 22,400 square miles, an average depth of 276 feet,
and a volume of 1,116 cubic miles, or 1,230,000 billion
gallons. The lake surface is nearly one-third of the
total drainage area. The lake is divided into two basin
by a submerged ridge, averaging about 230 feet below the
surface, that runs roughly from Grand Haven, Michigan,
to Milwaukee, Wisconsin. The water surface elevation
averages about 580 feet above sea level, and the maximum
depth of 923 feet in the northern basin extends 3^3 feet
below sea level. The coastline, with the exception of
Green Bay and Little Traverse and Grand Traverse bays,
is quite regular. Much of the shoreline is sandy and
provides excellent beaches for bathing, but constitutes
poor underwater surfaces for attachment and growth of
aquatic organisms.
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554
86'
83'
LAKE MICHIGAN
FIGURE I
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565
F. W. Kittrell
v
The greatest portion of the lake is in
the State of Michigan, with 12,350 square miles,, or 55«1
percent of the total surface area. Wisconsin has 7,550
square miles, or 33-7 percent, Illinois 2,280 square
miles,or 10.2 percent, and Indiana only 224 square miles,
or 1.0 percent.
The lake discharges at its northern and
southern ends. Its natural flow, estimated to be in the
approximate range of 40,000 to 55,000 cubic feet per
second (cfs), is through the straits of Mackinac into
Lake Huron, and a diverted flow of 3,200 cfs is into
the Chicago Sanitary and Ship Canal. The combined annual
outflow is equivalent to about one percent of the lake
volume.
Currents
The lake currents are quite variable.
Figures 2A and 2B show the four principal circulation
patterns in Lake Michigan. In the main body of the
(1) "Lake Michigan Currents." Great Lakes Region,
Federal Water Pollution Control Administration, Chicago,
Illinois (Nov. 1967).
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566
F. W. Kittrell
northern basin the currents revolve in a clockwise
direction 25 percent of the time and in a counterclock-
wise direction 25 percent of the time. The other half
of the time they flow toward the south in the middle of
the basin, split near the lower end, and return in a
northerly direction on each side of the central southerly
current. In the sothern basin, the main currents revolve
in a clockwise direction 25 percent of the time, and in
the opposite direction 75 percent of the time. The prin-
cipal importance of these currents in the consideration
of this Committee is that they cause rather complete
mixing of all waters of the lake over a period of time.
Of more significance in this Committee's
considerations are the currents nearer shore (Figure 3)
which flow in opposite direction to the main currents
between 10 and 90 percent of the time, depending on the
season of the year, and the point on the lake involved,
whether on the east or west shore, and whether in the
northern or southern basin. Thirty-five percent of the
time these currents flow in a southerly direction and
sixty-five percent of the time in a northerly direction,
in both basins.
-------
55?
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-------
558
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-------
559
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Figure 3
-------
570
F. W. Kittrell
Of still greater importance in this
Committee's considerations are the currents quite near
shore, in water less than 30 feet deep, especially in
connection with those power plants that discharge at
the shoreline rather than at some distance out into the
lake. Such shore currents are not necessarily subject tc
the main movements of water in the lake, but are greatly
influenced by wind direction, the local shape of the
shoreline and by natural and man-made obstructions, such
as tributaries, coves, .jetties from harbors or tribu-
taries, marina basins and breakwaters. The true pattern
of such currents can be determined only by observations
in the areas involved.
S t_r at i_f i cat i^ojn^
A phenomenon that has not generally been
(2}
recognized was reported in "Lake Michigan Currents."v '
Water along the shore has been found to have a different
temperature from that farther offshore. For example,
in summer shore water out to a depth of 23 to 33 feet
in Lake Michigan may be 9°F. or more warmer than that
(2) ibid.
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571
F. W. Kittrell
offshore. The change in temperature is quite abrupt.
The vertical interface where the waters with different
temperatures meet has been called a "thermal bar" and
may be likened to a fragile partition separating shore
waters from the main body of the lake. It is stated
that such a bar is intermittent and may occur at any
time during the year. Although fragile, the thermal
bar offers some resistance to mixing, and may in part
account for reports that wastes discharged at the shores
of large lakes frequently tend to travel along shore in
either direction from the point of discharge, rather than
out into the main body of the lake. This will be importa
in shoreline disposal of heated wastes in those areas
where substantial populations of aquatic life exist.
Potential damage to such life is greater ±n the shallow
waters in the vicinity of the shore than it would be
farther out into the lake.
A better known feature of Lake Michigan
is the typical stratification (horizontal) that is found
in most deep lakes. The lake may stratify in both summer
and winter, although winter stratification was not found
in the shallower and somewhat warmer southern basin
nt
-------
572
F. W. Kittrell
during the 1961-1963 current study. In summer, the
surface water warms up more rapidly than the deeper
water and continues to become less dense until it becomes
separated from the deeper water by a transitional, hori-
zontal stratum (thermocline) between the warm surface
water and the colder and more dense water underneath.
The temperature of the water below the thermocline remairj:
near that of the previous winter, with only minimal
warming as summer advances. This separation of the two
strata of water starts in lake May and persists until
November or occasionally into December in the southern
basin. In the northern basin, summer stratification may
not begin until late June or early July and likewise may
persist into December. The warm surface stratum is only
a few yards deep when first formed, but it deepens through'
out the summer, and may be as much as 200 feet deep by
late fall. This means that water intakes designed to
withdraw cold water from the depths of the lake would
have to extend into the lake as much as 30 miles at the
southern end, but as little as two miles in limited
reaches along the east side to ensure withdrawal of the
cold water at all times.
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573
F. W. Kittrell
i
NUCLEAR POWER PLANTS
One small nuclear power plant is already
situated on Lake Michigan. Five others are under con-
struction, or have had plans approved or plans submitted
for approval. A seventh is proposed but no plans have
been submitted. Locations of the seven nuclear plants
and of existing major fossil fuel plants are shown on
Figure 4. The figure includes electrical capacities of
the plants. The 7,100,000 electrical kilowatts (kwe)
capacity of the 7 nuclear power plants will be 52 perce.n
more than the 4,690,000 kwe of the 6 major fossil fuel
plants. However, the total present capacity of all
fossil fuel plants on the lake, including those at
industrial plants is estimated to exceed that of the
existing and proposed nuclear plants.
il^j^LiLL Design
The Big Rock Point plant has been in oper
ation since 1963. It is a boiling water reactor (BWR)
plant, and it, along with the Bailey plant, are the only
ones of this type among the seven. The Big Rock Point
plant is the smallest, with only 70,000 kwe capacity,
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574
P. W. Kittrell
or less than one percent of the total of 7,100,000 kwe
for the 7 nuclear plants. The other five plants will
be pressurized water reactors (PWR).
The Point Beach, Kewaunee, Zion, and
Palisades plants already are under construction. Con-
struction of the Bridgeman and Bailey plants has not yet
started.
Of the 7 nuclear plants 3, with 1,500,000
kwe capacity, will be located on the shores of the
northern basin of Lake Michigan, and 4 with a total of
5,600,000 kwe, will be located on the smaller southern
basin. Three plants with a capacity of 2,970,000 kwe
will be in Michigan, two with a capacity of 1,430,000 kwe
in Wisconsin, one with a capacity of 2,200,000 kwe in
Illinois, and one with a capacity of 500,000 kwe in
Indiana.
In a BWR plant steam is produced directly
in the nuclear reactor from water circulating around and
through it (Figure 5). A PWR plant has a closed "loop"
of water, known as the "primary coolant" that circulates
under high pressure (as much as 2,500 psig) between the
reactor and a boiler. The water of the primary loop
-------
575
NUCLEAR PLANTS
C5~"ax
/ MACCINAW
/ CITY
Copocity Complafion
Million KW Dote
Big Rock Point
»
Kewounee
Point Beech Unit I
Point Beach Unit 2
Zion Unit I
Zion Unit 2
Bridgmon Unit I
Bridgman Unit 2
Polisodes
Boilly
GRA.S'D HAVEN
SAUGATUCK FOSSIL FUEL PLANTS
0.07
O.53
0.45
0.45
1.10
1.10
1.10
1.10
0.7O
O.5O
1963
1972
1971
1972
1972
1973
1972
1972
1970
Lc!5 197 0*s
No.
I A N A
Nome
Lakeside
Oak Creek
Waukegon
State Line
Mitchell
Campbell
Capacity
Million KW
0.31
1.35
1.09
0.88
0 41
0.65
MAJOR POWER PLANTS
Figure U
-------
575-
o
<
UJ
C£
Figure 5
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577
F. W. Kittrell
does not "boil but yields its heat in the boiler to a
secondary water cycle, under lower pressure, where steam
is produced.
The nuclear reactor heat source consists
of containers of stainless steel or zirconium alloy
(cladding) encasing pellets of natural uranium dioxide,
which are enriched with uranium-235• The nuclear chain
reaction is controlled by rods of neutron-absorbing
materials such as cadmium, boron, indium and silver. In
the PWR, boron is added to the primary coolant to provide
additional control of the reaction.
From the point of production of steam
through the generation of electricity, the condensation
of the exhaust steam with cooling water, and the return
of the condensate to the heat source, the process in
nuclear power plants is the same as that in a fossil
fuel plant.
Predicted Increase
Production of electric power has approxi-
mately doubled in this country every 10 years since the
turn of the century, and the same rate of increase is
expected to continue at least to the Year 2000.
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578
F. W. Kittrell
It is anticipated that Lake Michigan,
with large volumes of cooling water available and with
rapid industrial growth along its shores will experience
a higher rate of increase than the national average.
The AEG Reactor Development Division has
estimated probable increases in nuclear power production
on Lake Michigan by 19^0, but not beyond. These estimate
based on anticipated increased power demands for companie
serving the area, are:
Commonwealth Edison 3,000,000 kwe
Wisconsin Power and Light 500,000 kwe
Wisconsin Public Service 500,000 kwe
Indiana and Michigan Electric i.i.9_9_9_iJ?_9_?_ kwe
TOTAL 6,000,000 kwe
The last of the nuclear power plants
(Bailey) presently planned for Ication on Lake Michigan
is scheduled for completion in the late 1970's. The
total capacity of the seven plants is 7,100,000 kwe. The
total capacity of the predicted additional plants is
6,000,000 kwe. This does not include capacities of any
fossil fuel plants that may be built.
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579
P. W. Kittrell
WASTES
General
The principal liquid wastes discharged
from nuclear power plants to receiving waters contain
radioactive materials and heat. Both of these consti-
tuents are discharged in the large quantities of cooling
water used to condense the exhaust steam for return to
the heat source.
Other waste materials, which were not
specified for consideration by the Committee, may include
bacteria and other constituents of sewage from employees;
residual chlorine, algicides or fungicides used to controfl
slimes in cooling water equipment; phosphates, chromates
or other corrosion inhibitors; boron from the primary
coolant of PWR's; minerals in boiler water blowdown; and
chemicals used in regenerating de-ionizing resins.
Had 1oa c^t_ive Wa s_t_e_s^
The nuclear power units proposed for Lake
Michigan are larger than any currently in operation.
There are no operating experiences to indicate the
quantities of radioactive wastes from plants of these
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580
P. W. Kittrell
capacities. The practice has been to estimate these
wastes on the basis of extrapolated data from operating
experiences of smaller installations, on assumed values
of fission product leakage from the fuel elements into
the primary coolant, and on efficiencies of various
waste treatment processes.
Origin
The radioactive materials originate in the
reactor and reach the waste stream by several routes.
Small quantities of radiorruclides produced by fission
in the reactor enter the primary coolant. Other radio-
nuclides are formed by neutron bombardment of the water
and the metals of the reactor equipment. The latter may
either go into solution in the coolant or may become
suspended in it as soluble corrosion products. Radio-
active materials may escape from the high pressure pri-
mary coolant system through leaks in valves, joints,
pumps, and other imperfections of the equipment. In
order to prevent excessive build-up of radioactive
materials in the primary coolant system, it is necessary
to withdraw a portion of the coolant from time and treat
it for removal of radioactivity.
-------
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F. W. Kittrell
Other sources of radioactive wastes are
the nuclear fuel storage pool, the laboratory and the
laundry.
Volumes
Final volumes of the treated radioactive
wastes from the large plants may be typified by that
estimated for one of them (Zion - 2,200,000 kwe) (Table 1
The total estimated volume os 2,920,000 gallons per year
or 8,000 gallons per day (gpd). The waste will be in two
categories, one being 6,000 gpd with mixed radionuclides ,
and the other 2,000 gpd containing tritium.
Actual data for four smaller BWR plants
(24 to 200 kwe) show that final radioactive waste volumes
ranged from 208 to 4,820 gpd. Waste volumes from two
small PWR plants (163 to 185 kwe) were 24,100 and 2,330
Radio n u c lj^de_s_
Table 1 is an example of estimated
(3) Blomeke, J. 0., and Harrington, F. E., "Waste
Management at Nuclear Power Stations." Nuclear Safety,
Vol. §_, No. 3 (May-June, 1968).
-------
582
TABLE 1
EXAMPLE OF ESTIMATED RADIOACTIVE HASTE DISCK/V3GS
FROM A NUCLEAR POVER FIA1TC
(Zion - 2,200,000 kwe)
RadAonuclide*
Co 60
Co 58
Cs 137
I 135
Cs
I 133
I 131
Mo 99
* 91
H 3
Mixed radionuclide waste discharge
Tritium waste discharge
Average annual cooling water discharge
Total mixed radioactivity
(exclusive of tritium)
Total tritiun radioactivity
Estimated itaxiinum radioactivity of
cooling water (exclusive of tritium)
Concentration -jac/cc
U.3 x 10"8
3.6 x 10"7
,-6
5.6 x 10"
3.1 x 10
1.0 x 10
6.3 x 10
8.1 x 10
-6
-6
-6
-6
1.5 x 10"5
2.6 x 10~9
2.5
6,000 gpd**
2,000 gpd
1,320,000 gpm
0.^5 curies per year
6,075 curies per year
-8
10~ /ic/cc
*Includes more than 99 percent of ^ross radioactivity.
**May all te released during one-hour period es "batch discharge.
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F. W. Kittrell
i
radionuclide release after treatment from the proposed
2,200,000 kwe PWR plant at Zion. The 0.25 curies of
total activity per year is quite low. Experience at
the four smaller BWR plants already in operation in the
24 to 200 kwe range, has shown that several actual dis-
charges have been considerably greater than this, with
a range of 0.01 to 5-8 curies per year. The two PWR
plants discharged total activity of 0.01 and 11.1 curies
(4)
per year.
Tritium is not included in any of the
above values since it generally is considered separately.
The Zion plant is expected to discharge 6,075 curies per
year. The four small BWR plants discharged from 5 to 20
curies of tritium per year and the two PWR plants 500
and 1,300 curies per year.(5) Tritium is one of the leas
hazardous of the radionuclides and has a very liberal
maximum permissible concentration (MFC) of 3 x 10 juc/ml.
Even the 1,300 curies per year discharge resulted in only
about one-sixth hundredth of the -tritium MPC in the plant
(4) ibid.
(5) ibid.
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384
F. W. Kittrell
cooling water. Tritium, which is radioactive hydrogen,
is incorporated in the water molecule and is not removed
by treatment processes.
Proposed Disposal
All liquid radioactive wastes will be
collected for treatment before discharge to the lake.
Treatment processes may include detention for radioactive
decay, settling of suspended solids, filtration, deminers
ization of soluble radionuclides, and evaporation. Solid
removed from the liquid wastes and ion exchange resins
will be disposed of off-site under regulation by AEG.
The residual treated liquid wastes will be held in
tanks for analysis before batch discharge to the lake in
the cooling water. All treatment facilities are designed
to meet liquid waste disposal requirements of both AEG
and the States in which the individual plants will be
situated. Although designed specifically to meet AEG
regulation, Title 10 Code of Federal Regulation part 20
(10CFR20), it is anticipated that during normal operatior
the radioactivity of the cooling water, with the exceptic
of that due to tritium, will be about 10 to 20 percent
of the annual average limit of 10 Jic/ml for mixed
1-
n
-------
585
P. W. Kittrell
unidentified radionuclides established by that regulation
Waste Heat
Cooling systems must be designed to delive
sufficient cooling water to condense the exhaust steam
efficiently, and at the same time meet temperature stan-
dards for the lake.
Electric steam plants are inefficient in
their conversion of thermal energy into electrical energy
Modern fossil fuel plants waste about 60 percent of the
thermal energy produced, and convert only about 40 percen
into electrical energy. Nuclear plants are even more
inefficient, with only about one third of the thermal
energy being converted to electrical energy. The lost
heat from both types of plants is wastes to the atmospher
from the stack gases, the turbines, the generator and
the pumps, and to cooling water in the condensation of
exhaust steam. It is the heat in the cooling water that
is of concern to this Committee.
The poorer efficiency of nuclear power
plants is reflected in both the greater thermal energy
necessary to produce a unit of electric power and the
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586
P. W. Kittrell
greater heat loss to the cooling water. Nuclear plants
waste 40 to 50 percent more heat to the cooling water
than do fossil fuel plants.
Volume
The volume of cooling water for a unit of
electrical production varies with the designed tempera-
ture increase of the cooling water. In general, the
average reported discharge for large nuclear plants is
about 1,300 million gallons per day (2,000 cubic feet
per second) for a 1,000,000 kwe plant. The Zion plant
is expected to discharge 2,280 cfs in winter, and 3*^00
cfs in summer, for an annual average of 2,9^-0 cfs. The
latter is very nearly equal to the annual average flow
of three of the four largest tributaries to Lake Michigaih,
the Grand, St. Joseph and Menominee rivers and is nearly
three-fourths of that of the largest, the Fox River.
Heat
As noted above, the temperature rise of
the cooling water depends on the design of the cooling
system. The increase may range from as little as 10 P.
to as much as 30°F. The Zion plant is designed to take
cooling water from the lake at a reported maximum of
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587
F. W. Kittrell
65°F. and return it at 84.6°F., a 19«6°F rise, in summer.
A more nearly constant value than increase
in temperature is the total waste heat per unit of power
production.
Modern efficient fossil fuel plants can
produce one kilowatt hour (kwh) of electrical energy,
equivalent to 3,413 BTU's, from about 8,500 BTU's of
thermal energy. There has been a continuing reduction
in the thermal energy required as plants efficiencies
have been improved. An average of 9>000 BTU's of thermal
energy per kw^ of electrical energy is a more nearly
representative value for some older plants. A nuclear
power plant requires about 10,000 BTU's of thermal energy
to produce one kwh of electrical energy. Federal Power
Commission information indicates that the waste heat
to cooling water in a nuclear plant averages 6,250 BTU's
per kwh. The Zion plant estimate is 6,740 BTU's per kwh.
A comparable value for fossil fuel plants is 4,450 BTU's
per kwh.
The seven nuclear plants, operated at full
capacity, would discharge an estimated 1,063 billion BTU'
per day to the lake. The range of heat discharges for
-------
. 388
P. W. Kittrell
the individual plants would be from about 10 to 330
billion BTU's per day.
Proposed Disposal
The cooling water from all plants will be
discharged to the lake in the vicinity of the power plant
Most discharges will be at the shoreline through open
channels. The Zion plant will discharge TOO feet off-
shore through a dispersion structure. Discharge veloci-
ties generally are reported to be about two to four feet
per second. No off-lake cooling facilities are proposed,
but all disposal systems are designed to meet the require
ments of the States in which the individual plants are
located. In general, this means that the maximum tempera
ture in the vicinity of the points of discharge will not
exceed 85 F., with a few degrees higher temperatures
allowed in some cases for mixing within limited specified
distances.
Gen era IP at t e r n_s___g f _ Wa s_t e P1ume s
Calculation of the anticipated patterns
of heated water that will be produced in the lake by
cooling water is not possible at the present stage of
development of methods for such calculations. In additior
-------
589
P. W. Kittrell
only a limited number of field observations of actual
heated water discharges in Lake Michigan is available.
Therefore, only very general comments on probable heated
water patterns in the lake are justified.
The warm water pattern in Lake Michigan
made by cooling water discharged from the J. H. Campbell
plant (fossil fuel) of the Consumers Power Company at
Port Sheldon, Michigan, was observed by the Michigan
Water Resources Commission on July 3> 1968. At that time
the plant was discharging 579 cfs of water with a tempera
ture of 83.5 F- at the lakeshore through a dug channel.
Wind was from the west at five miles per hour(mph).
Figure 6 shows details of the pattern of heated water.
The plume was about five feet thick and had a temperature
of less than one degree above lake water temperature
within one-half to one mile offshore. The warm water
extended along shore more than one and one-half miles
both north and south from the point of discharge.
Observations of the pattern of heated
water discharge in the lake were made by FWPCA Chicago
Regional Office personnel at the Commonwealth Edison
Company's Waukegan Plant (fossil fuel) on May 22, 1968.
-------
590
F. W. Kittrell
Wind was from the south-southeast. Figure 7 shows the
results of these observations. The warm water extended
about one-half mile offshore, and more than one mile
north along the shore.
The cooling water discharge pattern at
the Waukegan Plant also was observed by plant personnel
during April 1968. The plant was discharging about
1,700 cfs of cooling water at a temperature of about
60°F. which was 12°F. above that of the lake water. The
discharge from the plant was through a flume emptying
at the shore with a velocity of 2.6 feet per second.
The wind was generally in a southerly direction but varie
from slightly east to slightly west of south, which made
it approximately parallel to the shore. It was usually
less than 10 mph. Figures 8 through 17 show the results
of these observations in detail. The plume occupied a
roughly circular area, about 0.3 miles in diameter at the
surface with a center about 0.4 miles offshore. The cent
of the area was slightly north of the discharge point.
The area was connected to the point of discharge by a
neck less than 0.1 of a mile wide. The circular area
decreased with depth, averaging about 0.1 of a mile in
er
-------
-------
592
COMMONWEALTH
EDISON PLANT
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603
P. ¥. Kittrell
diameter at 14 feet. Part of the reduction in area was
attributable to the sloping bottom of the lake, which
extended about to the center of the warm water area at
the 18 foot depth.
Information was obtained from Dr. John
(6)
Edingerv on heated water discharged to the ocean. It
was stated that 1,000 cfs of heated water, 10°F. above
intake water temperature from a 1000 MW conventional
steam plant discharged submerged from an open end pipe
at a velocity of seven to eight feet per second was
diluted ten times in the receiving water in a surface
area of 200 acres (0.3 sq. mile). The temperature at
the "boundaries of the area was within 1 F. of the sur-
rounding water temperature. The topography of the ocean
bottom did not restrict free flow of diluting water to
the discharge area. It was indicated that if the same
quantity of heat was discharged with little mixing and
temperature reduced by surface cooling alone, the heated
water would occupy 2,300 surface acres (3.6 sq. mi.)
(6) Personal Communication from Dr. John Edinger,
Vanderbilt University, August and October 1968.
-------
604-
F. W. Kittrell
before the boundary temperature was within 1 F. of the
surrounding water temperature. This would probably
happen for discharges at less than 3-5 feet per second,
but depends on many features of discharge design.
Although this situation involved ocean
water, it is thought to be applicable to heated fresh
water discharged to a large lake, since the main density
difference in both cases would be caused by the differenc
in temperature between the cooling water and the
receiving water.
The relatively unmixed plume would result
if the cooling water disposal system were designed to
discharge at low velocity and float the heated water on
the surface with minimum mixing in order to achieve
maximum evaporative cooling. In a lake, such as Lake
Michigan, this method of disposal would entail the
probability that the relatively unmixed heated water
would be carried by wind action to the shore at times.
POTENTIAL EFFECTS ON WATER USES
The potential effects of the nuclear powe:
plant wastes are considered on the basis of the lake as
-------
605.
F. W. Kittrell
a whole and on that of local effects.
Radio actiy_ity
The design of the radioactive waste treat
ment systems is such that it should be possible to hold
the concentrations of radioactive materials in the cool-
ing water, before any dilution, to one-tenth or less of
the AEG requirement for the water at the boundaries of
the exclusion areas.
A total activity of 49,000 curies mixed
with the entire volume of the lake would be required to
-8 ,
give a gross beta count of 10 uc/ml above background.
Ten times as much, or 490,000 curies, would be required
_r7
for a gross beta count of 10 uc/ml. It is estimated
that the seven proposed plants probably will discharge
about one curie of mixed activity, exclusive of tritium,
per year. Nearly 1.5 billion curies of tritium would be
necessary to exceed the MFC for this radionuclide .
Except for an accident at one of the
plants there does not appear to be any cause for imme-
diate concern as a result of the radioactive discharge
from normal nuclear power plant operation as it may
-------
606
F. W. Kittrell
affect the lake as a whole. However, the increased size
of the plants, the lack of experience with large reactor
the possibility of human error, the rupture of a pipe or
even the possibility of deliberate sabotage justifies
conservatism in the design and location of nuclear power
plants. In a remote area the effect of a reactor acci-
dent could be largely economic, restricting the use of
a moderate section of land and requiring the rebuilding
of a damaged or destroyed plant. However, one serious
nuclear accident on the shore of Lake Michigan, although
highly improbable, could release large quantities of
long-lived radioactive materials into Lake Michigan
where it would be uncontrolled and could have very
serious effects on future use of the lake. Such an even'
would require immediate evaluation and initiation of
measures to protect public health and safety and the
resources of the lake. A coordinated interagency effort
in the event of such an unlikely occurrence is mandatory
Waste Heat
Reasonably complete data are available
for fossil fuel power plants around the southern basin
of Lake Michigan, south of a line from Milwaukee across
-------
607
F. ¥. Kittrell
to Grand Haven, where most of the population, industry
and power plants are located. The fossil fuel plants
have a total power production capacity of 6,070,000 kwe.
The proposed nuclear power plants around the southern
basin will have a total capacity of 5,600,000 kwe.
Data on fossil fuel plants around the
northern basin are incomplete. The existing plus pro-
posed nuclear plants around the northern basin have a
total capacity of 1,500,000 Kwe. If it may be assumed
that the ratio of fossil to nuclear fuel plants for
the southern basin applies to the northern basin, there
would be a total fossil fuel plant capacity of 1,630,000
kwe around the northern basin.
On this basis the fossil fuel capacity
for this lake as a whole would be 7,700,000 kwe, and the
existing plus proposed nuclear fuel capacity is 7,100,00
kwe .
Applying the heat losses in cooling water
previously discussed, the fossil fuel plants operating
at full capacity would discharge 300,000 billion BTU' s
per year to Lake Michigan and the nuclear fuel plants
would discharge 388,000 billion BTU's per year for a
-------
608
F. W. Kittrell
total of 688,000 "billion BTU's per year. Assuming none
of the added heat to be lost from the lake during the
year the temperature of the 10,800,000 billion pounds
of water in the lake would be raised an average of a
^o
little more than O.Oo F. by the end of the year.
There would, however, be significant
loss of the added heat by radiation, evaporation and
other means. Any residual heat, though, could be cumu-
lative. The annual average temperature of the lake woulc
be increased by an amount that eventually would reach
equilibrium when the higher temperature of the water
caused additional annual heat loss by the lake as a
whole that would balance the annual addition of residual
heat in the cooling water.
Using an adaptation of the method for
estimating heat losses from streams and ponds described
(7)
by Velz and Gannon, and assuming an annual average
temperature of 50 F. for Lake Michigan, a very conservative
(7) "Forecasting Heat Loss in Ponds and Streams,"
C.J. Velz and J.J. Gannon. Journal Water Pollution Centre
Federation, Vol. 32, No. 4 (April 1960).
-------
609
F. W. Kittrell
estimate of the increase in annual average lake tempera-
ture at equilibrium caused by the existing fossil fuel
plants and the existing and proposed nuclear fuel plants
would be 0.05°F. or from 50°F. to 50.05°?.
The method of calculation (see Appendix B
is such that any additional increase in annual average
temperature of the lake caused by increased power pro-
duction would be in direct proportion to the increase in
heat added to the lake. If it be assumed that there
will be about eight times the present plus proposed
power production by the Year 2000, the annual average
temperature of the lake would be increased by an estimat
0.4°F. (8 x 0.05°F) at that time to 50.4 F.
Available data indicate that there has
been a 2°F. decrease in temperature of the lake in the
past 80 years, presumably because of a long-term trend
in weather conditions^ '. Power production would have
(8) "The Climatology of Lake Michigan," John G.
Ayers. Great Lakes Reserach Division, Publication No. 12,
Institute of Science and Technology, the University of
Michigan, Ann Arbor, Mich., 1965.
-------
6lO
P. W. Kittrell
to be 40 times the present plus proposed capacity to
cause an increase in average lake temperature that would
o
equal the 2 F. decrease caused by natural circumstances.
This power production capacity would not be reached
until about the Year 2023, if the present rate of doub-
ling every 10 years continued until then.
These conservative calculations show that
there is minimum cause for immediate concern over pos-
sible adverse effects of heated wastes on the lake as
a whole, but the potential long-term effects must be
considered.
Local Effects
Although there is minimum cause for con-
cern over effects of the power plant discharges on the
lake as a whole within the foreseeable future, there mus
be consideration of possible effects on water quality
and uses in the vicinity of power plant discharges.
There are several types of water uses
within distances that will be reached by wastes con-
taining radioactive materials and heat from nuclear powe:
plants. Several municipal water plant intakes are withii
a few miles of proposed cooling water discharge points.
-------
F. W. Kittrell
*
There likewise are bathing beaches within distances to
which the warmer water may extend. Fish, and the aquati
life on which they depend for food, occur throughout the
lake. Both sport and commercial fishermen go where the
fish are. Pleasure boaters are limited in their travel
about the lake only by shallow water and intermittent
roughness. Ducks and geese are common in many areas of
the lake at certain times of the year.
Since it is anticipated that radioactive
materials will be diluted in power plant cooling water
to about one-tenth or less of the AEG 10CFR20 limit,
which is based on the maximum permissible concentration
in drinking water, and since the cooling water will
receive several-fold dilution with lake water before
reaching any municipal water supply intake, no adverse
effect on this use is anticipated.
It is possible that temperature of the
raw water for one or two of the closer water supplies ma
be increased by a few degrees at times. An increase in
temperature could intensify taste and odor problems,
but it is not believed that the increase will be suffici
;nt
-------
612
F. W. Kittrell
to interfere with normal use of any municipal water
supply.
Bathing Beaches
Radioactive concentrations reaching any
bathing beaches will be far too low to cause any adverse
effect.
Lake Michigan waters frequently are so
cool, even in the middle of summer, that they are uncom-
fortable for bathing. It has been suggested that a
benefit might be realized in some cases by controlled
admission of at least some of the heated water from powej
plants to nearby bathing areas. The bathing season for
certain beaches conceivably might be extended by this
use of the heated water. In no case is it anticipated
that excessive heating of nearby beaches will occur.
Commercial and P1 ejasure goating
The only conceivably adverse effect on
commercial and pleasure boating would occur if the heatec
wastes should cause excessive fog on the lake. This
Committee believes that any potential hazard to boating
because of this would be minimal.
-------
613
P. W. Kittrell
•
Fish, Other Aquatic Life, and Wildlife
No adverse effects on ducks and geese are
anticipated by either radioactive materials or heated
water.
Aquatic life of the lake is the factor
most apt to be affected by waste heat.
It is possible that some of the radioactiv
materials in the cooling water could be concentrated
successively in the food chain of aquatic life on which
fish depend, and in the fish themselves to become a
radiation hazard to humans who eat Lake Michigan fish
regularly and frequently. The experience of the Illinois
Sanitary Water Board with the boiling water reactor power
plant at Dresden on the Illinois River, of the Wisconsin
Department of Health and Social Service with the LaCrosse
boiling water reactor on the Mississippi River, and that
of the Michigan Water Resources Commission with the Big
Rock Point boiling water reactor on Lake Michigan, indi-
cate that any such probability is extremely remote. Of
course, these plants are much smaller than those planned
for Lake Michigan., and it will be necessary to monitor
the aquatic life of areas adjacent to the new power plant
-------
614
F. W. Kittrell
before this preliminary conclusion can be verified. The
(9)
AEG has confirmed the need for such evaluation:v '
"The dilution, dispersion, and
transport of liquid radioactive wastes in
surface waters (rivers, lakes, estuaries,
bays and open ocean) are important factors
in the siting of nuclear reactors. In
addition to these phenomena, attention
frequently needs to be directed toward
biological concentration of radionuclides
in aquatic life. It may be desirable to
review previous work on this subject,
including related research on discharge
of municipal and industrial liquid wastes.
Preparation of a state of the art review
of current knowledge, and delineation of
areas where further research is needed, would
be useful. A special evaluation of the
impact of siting many reactors on the
shores of the Great Lakes, in relation to
(9) AEC News Release No. JN-725 (Oct. 25, 1966).
-------
615
F. W. Kittrell
retention and flushing characteristics
and to accumulation of radionuclides in
aquatic organisms, may also be desirable."
A more probable adverse effect is destruc-
tion or serious alteration of the aquatic life on which
fish feed and possibly the killing of fish or interferenc
with their normal spawning and growth if excessive tem-
peratures of lake water occur.
The effects of localized temperature
increases on the aquatic life in Lake Michigan are
impossible to predict from the limited information
available. Only a few observations have been made to
date of the effects of existing thermal discharges on
Lake Michigan biota. However, laboratory investigations
and observations elsewhere suggest that increases in
temperature can result in damage to the aquatic environ-
ment .
Temperature may activate and stimulate
living things, but it also can depress, restrict, control
or even kill them. It is one of the most important of
water quality characteristics. Temperature strongly
influences the existence of particular species in water,
-------
6l6
P. W. Kittrell
it activates spawning and hatching of fish, regulates
their activity and stimulates or suppresses their growth
and development. Heated water can attract fish and they
may be killed when water becomes heated or chilled too
suddenly. Colder water usually suppresses development.
Warmer water generally accelerates activity and can be
a primary cause of aquatic plant nuisances when other
factors are suitable.
Temperature changes in water affect
relationships among organisms, processes of natural
purification, and growth and survival of bacteria.
Biological reaction rates increase as water is warmed.
An insect nymph in artificially warmed water, for example
might emerge for its mating flight too early in the
spring and perish in the cold air, or a fish, under
similar artificial conditions, might hatch too early
in the spring and starve before its natural food
developed. Organisms in water that rarely is warmer thar
o ^
70 F. are subject to stress by, and may even die in, 90 F
water. Even at 75 to 80°F. they may not be able to com-
pete successfully with organisms for which this tempera-
ture range is favorable.
-------
617
P. W. Kittrell
As water temperatures increase, green
algae may replace diatoms as the predominant algae,
and at high temperatures these may in turn be replaced
(10)
by blue-green algae. Cairns found that diatoms from
an unpolluted stream generally grow best at 64-.4 to 86 P,
Blue-green algae often cause severe visual and olfactory
nuisances, and some species can be toxic to animals.
One of the green, filamentous, attached
algae, Gladophora, already grows rather prolifically
in certain areas of Lake Michigan, and it might be stimu-
lated to nuisance proportions in warmer water. It has
been observed in the laboratory that optimum growth of
Cladophora occurred at 8l to 86 P.
The numbers and kinds of bottom organisms
that serve as food for fish decrease as temperatures
o
increase above 90 P., which is close to the upper limit
for a balanced population. However, if temperatures
are held to moderate levels, the numbers of bottom
(10) Cairns, John, Jr., "Effects of Increased Tem-
perature on Aquatic Organisms," Ind. Wastes, 1^, ^, 150-
2 (1956).
-------
618.
F. W. Kittrell
organisms are more apt to be increased than decreased by
some increase in temperature.
In spite of the known adverse effects
which temperature change can have on aquatic life, it is
not certain that they will occur in the unique environ-
ment of Lake Michigan. Much of the shoreline is seldom
inhabited by aquatic animals because the bottom materials
consist of shifting sand. There are rocky shoals that
support game fish population. Whether or not local
increases in temperatures will accelerate the eutrophi-
cation of Lake Michigan is uncertain at present. It is
tempting to speculate on this but only intensive long-
term studies will reveal the facts. Local increases in
algal growth very probably will develop if sufficient
nutrients are available, since biological activity is
greater in warmer than in cooler water. The magnitude
of these increases must be known before there can be
evaluation of the potential problem.
Pish are attracted to warm water in the
winter and fishing may be more successful in such areas
than in adjacent colder areas. If the temperature
difference is too great, however, the fish may be killed
-------
619
F. W. Kittrell
*
on return to the cold water, since they are more sus-
ceptible to sudden chilling than to sudden warming.
Temperatures lethal to fish may result from heated
discharges in summer. Lethal temperature levels vary
rather widely with different species, and vary to some
extent within a species in relation to previous accli-
matization .
TVA has had a long and varied experience
with discharge of heated water to reservoirs. Their
personnel report no known case of fish kills because of
return of fish from warm to cold water, and only one
fish kill because of excessively warm water. The latter
case occurred when added electrical capacity was brought
into operation on a stream that was too small for the
added heat load imposed on it. Cooling towers now are
being constructed at this plant.
A more subtle effect on fish may be
interference with spawning and hatching if temperatures
vary much above natural levels which occur in spawning
areas during normal spawning periods. It has also been
suggested that increasing temperatures may block the
migration of fish or cause them to avoid inshore waters;
-------
620
F. W. Kittrell
thus making them less accessible to fishermen.
Atmospheric Effects
Since no cooling towers are included in
plans for the proposed nuclear plants, the effects on
atmospheric conditions will be minimal. There may be
some local fog formation over the lake and adjacent
land in the vicinity of the cooling water discharges.
The more rapid the mixing and cooling of the warm water
with the lake water, the less will be the probability
of fog formation.
If cooling towers should become necessary
in the future, it is reported that fog at ground level,
and accompanying icing of adjacent surfaces can be
controlled by proper cooling tower heights. Further
investigation of this feature by persons specializing in
meteorology is needed before the range of necessary towei
heights can be specified. This probably will involve
advanced investigation of local atmospheric conditions.
CRITERIA
Three sets of criteria, standards or
regulations are of interest in considering nuclear power
-------
621
F. W. Kittrell \
plant wastes. They include: The States standards for
temperature and radioactivity^ the water quality criteri:
for temperature and radioactivity recommended by the
National Technical Advisory Committee to the Secretary
if
of the Interior; and the AEG rules and regulations for
the disposal of radioactive wastes to the environment.
States
The States standards for temperature
are given in Table 2 and for radionuclides in Table 3.
T e mp e r a t u r e _s_t and a r d s
The limit on maximum temperature for pro-
tection of aquatic life in Lake Michigan adopted by two
o
of the States, Illinois and Indiana, is 85 F. Wisconsin
permits a maximum of 89°F. in shore waters near waste
discharges and in harbor waters. All States allow a
reasonable distance for mixing. The maximum limits for
the three States with numerical limits appear to be
quite similar, depending on administrative interpreta-
tions of allowable mixing zones.
Illinois and Wisconsin have modifying
requirements that may limit temperatures to less than
the 85°F. maximum. Illinois does not permit changes
-------
622
P. W. Kittrell
in temperature greater than 2 F. per hour nor cumulative
changes greater than 5 F. from natural water temperature
o
Wisconsin permits no abrupt change of more than 5 F.,
o
nor an increase in a stream of more than 3 F. above the
natural maximum.
Indiana does not have such modifying
requirements. Michigan has no numerical limit on tem-
perature for Lake Michigan but bases control of heated
discharges on abatement or prevention of injuries caused
by such discharges.
Of the standards proposed by the States,
those of Michigan have not been approved by the Secretar
of Interior.
It is obvious that variations in enforce-
ment of the State standards are possible.
Radionuclides Standards^
All four States base radionuclide limits
on the Public Health Service 1962 Drinking Water Standar
Three of them incorporate the PHS standards by reference
but Michigan paraphrases a portion of the standards
(Section 6.22). The Wisconsin standard, based on PHS
standards, is specified for-public water supplies, and
is
-------
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-------
62?
F. W. Kittrell
it applies AEG 10CFR20 limits to all water uses. The
Michigan standards apply to municipal water supply and
agricultural uses only. The Indiana and Illinois stan-
dards apply specifically at municipal water supply intak
only, in open water and inner harbor basin, and to bath-
ing beach areas only in shore waters, but presumably
would be applied anywhere to a heated discharge.
Atomic Energy Commis
;s
The AEG responsibility for waste disposal
in licensing nuclear power plants presently is limited
to safe disposal of radioactive wastes, and does not
extend to control of waste heat.
Radionuelide Rejrulat:^ojns_
The AEG requirements for control of
radionuclides discharged to surface waters are included
in the U. S. Atomic Energy Commission Rules and Regula-
tions, Title 10 - Atomic Energy, Part 20, "Standards for
Protection Against Radiation," which has been abbreviate^
to 10CFR20 in most references. This regulation covers
not only safe liquid waste disposal but is designed to
afford protection against all radiation hazards of all
persons that could be affected by the use of radioactive
-------
____________ _ 628
F. W. Kittrell
materials licensed by AEG.
Applications for licensing nuclear power
plants usually state that waste disposal will meet the
requirements of 10CFR20, without specifying what the
requirements are.
The basic requirement is that the sum of
the individual radionuclide concentrations in the liquid
wastes divided by their individual limiting concentrations
not exceed 1.0:
CT , G£ _|_ C-3 ^
fY (MPCW)2
where :
C sa annual average concentration of the individual
radionuclide
MFC = 10CFR29 concentration limit for the individu;
W
radionuclide.
Table 2, Column 2 of Appendix Ba 10GFR20,
lists the MFC of all common radionuclides . The concen-
w
tration limits are based on the recommendations of the
National Council on Radiation Protection and Measurement
and of the Federal Radiation Council.
The determination of all radionuclides
-------
629
F. W. Kittrell
in the wastes from a nuclear power plant would be time
consuming and expensive, and 10CFR20 contains an alter-
nate requirement. This limits the gross radioactivity
_'?
to 10 jnc/ml (100 pc/1) above natural background as an
annual average, provided that Iodine-129 and Radium-226
and -228 are known to be absent from the wastes.
Generally adherence to the 10CFR20 limit for unidentified
radionuclides will necessitate a smaller total release
of radionuclides than that which would be permitted if
the identity and concentration of each radionuclide in
the mixture were determined.
The limits of the permissible radionuclid
concentrations must be met at the boundary of the nuclea
power plant "exclusion" area. This usually means that
the limits apply to the waste discharge.
The 10GFR20 gross radioactivity limit of
-7
10 jic/ml is one-tenth of the PHS Drinking Water Standarp.
gross beta count of 1,000 pc/1, but the latter specifies
that Strontium-90 must be absent, which the former does
not. For this reason the two limits on gross beta count
are not directly comparable.
The AEG concentration limits are directed
-------
630
F. W. Kittrell
toward protecting individuals in the general population
from exposure to radiation as a result of Intake of radio
activity through air and water. In addition to these
limits on concentrations in effluents, the AEG may
impose limits on the gross quantity of radioactive
material released in air or water in a specified period
of time if it appears likely that the daily intake of
radioactive material from air, water and food by a suit-
able sample of the exposed population group exceeds the
daily intake that would result from continuous exposure
to air or water containing one-third the concentration
of radioactive material specified for effluents.
FWPCA Committee on Water Quality Criteria
Tempejrature Criteria
The report of the Committee on Water
Quality Criteria published April 1, 1968, recommends
temperature limits for several water uses. Briefly
(11) "Water Quality Criteria, Report of The
National Technical Advisory Committee to the Secretary
of the Interior," Federal Water Pollution Control Ad-
ministration, Washington, D. C. (April 1, 1968).
-------
631
P. W. Kittrell
summarized, they are:
1. In primary contact (recrea-
tion) waters, temperature should not
exceed 85 F.
2. For aquatic biota, including
fish :
a. Temperature of the epliminions
of lakes should not be raised more
than 3°F.
b. Normal daily and seasonal fluc-
tuations should be maintained.
c. The following maximum temperatures
for various species of fish are recom-
mended:
93°F. Growth of catfish, gar,
white or yellow bass, spotted
bass, buffalo, carpsucker,
threadfin shad, and gizzard shad.
90°F. Growth of largemouth bass,
drum, bluegill, and crappie.
84°F. Growth of pike, perch,
walleye, smallmouth bass, and
-------
632
P. W. Kittrell
sauger.
80°F. Spawning and egg develop-
ment of catfish, buffalo, thread-
fin shad, and gizzard shad.
o
75 F. Spawning and egg develop-
ment of largemouth bass, white,
yellow, and spotted bass.
68°F. Growth or migration routes
of salmonids and for egg develop-
ment of perch and smallmouth bass.
55°F. Spawning and egg development
of salmon and trout (other than lake
trout).
48°F. Spawning and egg development
of lake trout, walleye, northern
pike, sauger, and Atlantic salmon.
Radionuclide Criteria
The recommendations of the Committee on
Water Quality Criteria for limits on radionuclides in
sources of municipal water supply are the same numerical
values for gross beta activity and for Radium-226 and
Strontium-90 as the PHS Drinking Water Standards.
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F. W. Kittrell
The criteria for radionuclides in water
serving as a habitat for aquatic life incorporate the
PHS Drinking Water Standards, but also limit concentra-
tions to less than those that would require restrictions
on use of organisms harvested from the area in order to
meet the Radiation Protection Guides recommended by the
Federal Radiation Council. Finally, there should be no
radioactive materials in receiving waters as a conse-
quence of failure of an installation to exercise practi-
cal and economical control to minimize release.
Criteria for essentially all other water
uses are based on the PHS Drinking Water Standards,
specifying limits of 3 pc/1 for Radium-226, 10 pc/1 for
Strontium-90, and 1,000 pc/1 for gross beta activity in
the known absence of Strontium-90 and alpha-emitting
radionuclides.
EVALUATION OF PROPOSED WASTE DISPOSAL
Radionuclides
Applications to AEG for licenses for
installation and operation of nuclear power plants state
that methods for disposal of radioactive materials will
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F. W. Kittrell
be in compliance with AEG 10GFR20. In fact, it generall
is indicated that the concentrations of radionuclides in
the cooling water discharge will be only 10 to 20 percen
of the appropriate 10CFR20 limits. Compliance with
10CFR20 will ensure compliance with the standards of
those States that have adopted the PHS Drinking Water
Standards for radionuclides.
The only adverse effect that might result
from routine operation is the possible concentration of
radionuclides through the aquatic food chain to fish
that would be consumed by humans. This possibility
is believed to be remote, but it is a matter that should
be investigated in the vicinities of the first large
plants that are installed.
More adverse conditions could occur in
the event of neglect or accident in operation of disposa
facilities. The present practice of continuous monitor-
ing of the cooling water discharge is essential to detec
any unusual discharges of radionuclides that might occur
The AEC and the power industry have contingency plans
in case of major accidents involving release of radio-
activity. There is a need to develop a plan for full
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F. W. Kittrell
coordination of other Federal, State and local agencies
having competence in this area.
In keeping with the policy of the States
and AEG of minimizing the discharge of radioactivity to
the environment to the greatest practical extent, the
Committee believes that all reasonable steps should be
taken to reduce radioactive wastes as much as possible.
Methods of waste reduction include detention for decay,
sedimentation, filtration, demineralization, evaporation
and recycling to the primary coolant. Solid wastes are
disposed of off-site in accordance with AEG regulations.
Heat
The adequacy of proposed methods for
disposal of heated cooling water is subject to more
questions and involves more uncertainty than does that
of disposal of radionuclides.
Most of the proposals involve withdrawal
of relatively cool (about 65 F. in the summer) water
from the lake at some distance from shore and return of
o
the water at about 85 F. near shore either through a
dug channel discharging at the shoreline, or through an
appurtenance that will release the water a short distanc
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F. W. Kittrell
from shore. The standard would be met either by limit-
ing the temperature of the cooling water to that of the
standard, or by taking advantage of a specified mixing
zone allowance, with the temperature of the mixed cool-
ing and lake water meeting the standard at the boundaries
of the mixing zone.
Available information on the potential
impact of large volumes of cooling water on large lakes
does not provide a sound basis for firm conclusions
regarding adequacy of proposed methods of disposal or
of possible adverse effects on Lake Michigan.
It appears that no issue can be taken with
those proposals that would maintain the maximum tempera-
ture of the cooling water, before discharge to the lake,
at the temperature of the standards. Even here, however,
there conceivably could be limited adverse effects such
as production of excessive plankton and attached algae,
and interference with the spawning, hatching and develop-
ment of certain species of fish. The latter could occur
if the cooling water maintained the temperature of water
in breeding areas at 85°F., or even less, at critical
times in the life cycle of fishes.
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F. W. Kittrell
Alternative Methods of Disposing of Heated Wastes
The method of heat disposal that would
have least impact on even limited areas of the lake
would be the use of evaporative cooling towers, ponds
or other methods of off-lake cooling to reduce the tem-
perature of the water to or very near that of the shore
waters of the lake. This would involve loss of water
from the lake by evaporation.
The nuclear power plants generally are
larger than any existing fossil fuel plants and require
considerably larger quantities of cooling water. The
Zion plant, for example, when completed will use an
annual average of 2,940 cfs, with a maximum of 3,400
cfs in summer. Of all the rivers tributary to Lake
Michigan only the Fox River in Wisconsin has an average
annual flow significantly greater than the Zion summer
cooling, water use. If all proposed plants used water for
cooling at the same rate in relation to production capacijty
as the Zion plant, the average use would be 9*500 cfs.
The proposed power capacity plus that predicted by 1980,
if all should be nuclear power, could use 17,500 cfs.
Maximum use during summer by 1980 could be 20,000 cfs.
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F. W. Kittrell
If evaporative cooling towers should be found necessary
by then and resulted in two percent loss of water through
evaporation, this would result in evaporation of 400 cfs
during summer. Of course, there will be some evapora-
tive loss even if immediate dispersion into the lake is
used, but it would be considerably less than 400 cfs.
By the Year 2000, evaporation could be 1,600 cfs if powei
production continued to double and evaporative cooling
towers were necessary on all installations.
Dry cooling towers permit cooling without
evaporation. They are designed to transfer heat by air
cooling and radiation.
Two different methods of heated water
discharge without off-lake cooling have been discussed
by the Committee. A method that would have minimal
impact on water quality and uses would be the submerged
discharge of the cooling water at velocity high enough
to ensure rapid mixing, and far enough from shore to be
beyond the thermal bars that probably partly account for
the reported tendency of discharges near shore to remain
in the vicinity of the shore. It is reported that 1,000
cfs of seawater, with a temperature 10 F. above that of
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F. W. Kittrell
the ocean, discharged from the open end of a pipe at a
velocity of 7 to 8 feet per second was diluted to 10
times its volume in 200 acres of the ocean surface.
It is believed that similar dilution might be accomplishe
in the lake. This would minimize evaporative cooling
and would involve an average increase of 2 F. to 3 F.
in the temperature of a relatively large volume of lake
water.
The other method would involve low velocit
discharge with as little mixing as possible, allowing the
cooling water to float on the surface of the lake in
order to take advantage of as much evaporative cooling
as possible. It is reported that 1,000 cfs of warm ocear
water 10 F. above ocean water temperature discharged to
the ocean in this manner would occupy 2,300 acres of the
ocean surface. The total volume of lake water in whict
a temperature rise would occur if this method were used
would be minimal, and heat added to the lake as a whole
would be minimized. This method would involve the
certainty, however, that there would be times when the
heated water would be carried by wind action to shore
where the greatest damage to aquatic life could occur.
y
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F. W. Kittrell
The Committee has not considered the
costs of cooling devices or of submerged discharges
with rapid mixing. However, it realizes that either of
these methods would be costly and recommendation that
one or the other be routinely required for all power
plants would have to be supported by firm information
on damages to water quality and uses that would result
from failure to require such devices. Available
information on potential damages does not provide a
basis for such a position at this time. Such informa-
tion can be obtained through studies by aquatic bio-
logists of areas in Lake Michigan where large fossil
fuel plants presently discharge large quantities of
cooling water.
It is probable that the time will come
when more sophisticated methods of disposing of the
waste heat than merely discharging it to the lake at the
shoreline will become necessary. Now is the time to
start accumulating sound information on which to base
decisions regarding requirements for future disposal of
the waste heat.
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F. W. Kittrell
Other Wastes
The Committee has not evaluated disposal
of wastes other than radionuclides and heat.
STUDY PLAN
Data on the effects of heated waste
discharges to Lake Michigan are needed. Examination of
the effects of existing large fossil fuel plants on
water quality and uses can go far toward providing the
necessary information on effects of heated wastes on
aquatic life, which appears to be the potentially crucial.
aspect of heated waste discharges.
In addition to studies of effects of
existing fossil fuel plants there is need for collection
of baseline data on present water quality and aquatic
life in the vicinities of future nuclear power plants.
An outline of a plan for such studies is presented in
the Appendix.
Some studies already are under'wuy in the
vicinities of some of the proposed plants. The power
companies have contracted for or are conducting most
of this work; but the States, consultants, and FWPCA
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F. ¥. Kittrell
also are involved to some degree. There is a need for
coordination and possible expansion of the work now in
progress.
SUMMARY AND CONCLUSIONS
Following the Conference on pollution of
Lake Michigan and its tributary basin in early 1968, a
Committee was formed by the Conferees to consider the
disposal of thermal and radioactive wastes from nuclear
power plants to be located on Lake Michigan.
One existing and six proposed nuclear
power plants with an electrical production capacity of-
7,100,000 kilowatts will be in operation on the shores
of Lake Michigan within the next decade, with all but
one scheduled for completion by 1973. This proposed
capacity probably will be only a little less than the
estimated 7,700,000 kwe existing fossil fuel power plant
capacity.
Since the turn of the century, thermal
power plant production throughout the Nation has approxi
mately doubled every 10 years. It is anticipated that
the availability of a large source of cooling water in
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F. W. Kittrell
Lake Michigan and the expanding industries on its shores
will support an even greater increase in power produc-
tion in this area than the national average. Most of
the increased capacity probably will be in nuclear power
plants.
The AEG predicts that there will be need
for an additional 6,000,000 kilowatts of e'lectrical
capacity on Lake Michigan by 1980.
Existing fossil fuel plants operating
at full capacity discharge an estimated 300,000 billion
BTU's per year in cooling water to the lake. Nuclear
reactor power plants discharge 40 to 50 percent more
waste heat per unit of electrical production to the
cooling water than do fossil fuel plants, and it is
estimated that the 7 nuclear plants when in full opera-
tion will discharge 388,000 billion BTU"s per year to
the lake. If all plants, both existing and proposed
operated at full capacity for a year, and if there were
no reduction of the added heat through evaporative cooli-
and other means, and assuming complete mixing of the
entire lake, the temperature of the lake would be raised
a little more than 0.06 F. annually.
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P. W. Kittrell
The foregoing calculation assumes no
reduction in the heat of the cooling water added to the
lake, but actually there will be much reduction through
evaporation, radiation and other means. There will,
however, be a residual of the added heat that will be
cumulative until an equilibrium is reached at a somewhat
higher temperature than that due to natural causes. It
is estimated that with an average annual temperature
of 50°F. for the lake the added heat would raise the
o
average annual temperature at equilibrium by 0.05 F.
to 50.05°F. With increasing power production and no
off-lake cooling, it is estimated the average annual
temperature would be increased by Q.4°F. in the year
2000, and by 2.0°F. in 2023. This increase would
nullify a 2.0°F. decrease in average annual temperature
of the lake that has occurred, apparently from natural
causes in the past 100 years.
These conservative calculations indicate
that there is minimum need for immediate concern over
the effect of temperature on the lake as a whole. The
probable long-range effect deserves consideration.
Possible local effects of increased
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F. W. Kittrell
•«
temperature on aquatic life, including fish, are cause
for more immediate concern than the effect on the lake
as a whole. Fish and the aquatic organisms that serve
as their food are particularly sensitive to variations
in seasonal temperature during reproductive and .juvenile
stages. For example, abnormally nigh temperatures
during the spawning and hatching season may completely
upset the normal reproductive cycle of fish, and thus
limit or prevent their production. It also is possible
that increased temperature of lake water locally may
stimulate undesirable growths of plankton and filamentou
algae, and lead to production of nuisances.
Of the four States bordering the lake,
Illinois and Indiana have temperature standards, approve
by the Secretary of the Interior, that require that the
maximum temperature of Lake Michigan water not exceed
85 F. after reasonable allowance for mixing. The Wis-
consin standard also approved by the Secretary allows
up to 89°F. after mixing, at the shoreline and in
harbor waters. Some, but not all, of these standards
also include various provisions limiting rates of tem-
perature increase and increases over natural temperature
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F. ¥. Kittrell
The Michigan standard, which has not been approved by
the Secretary, establishes no numerical limits, but is
a general statement designed to abate or prevent injury
of any kind due to temperature to any type of water use
or value.
All four States grant approval for the
nuclear power plants with the understanding that require
ments may be revised if experience proves the need for
revision.
Most of the plants propose to draw cool-
ing water from some distance out in the lake where the
temperature only infrequently will be above 65 F. Thus
the temperature of the cooling water can be increased a
reasonable amount without exceeding the standards for th
lake water. Most of the plants propose to discharge the
cooling water through channels ending at the shoreline;
though one (Zion, in Illinois) plans to discharge througfi
a ^dispersion device about 700 feet from shore. Dis-
charge velocity at the shoreline of two to four feet per
second will tend to float the warm water on the lake
surface with a minimum of mixing. This will allow
maximum cooling from evaporation and radiation, and
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F. W. Kittrell
minimum addition of heat to the lake water, but will
permit maximum temperature of the floating heated water
mass. Since such discharges generally tend to travel
up or down the shoreline rather than out into the lake,
the greatest damage to aquatic life along the shore
could result from this method.
Large quantities of cooling water are
required by nuclear power plants. The Zion plant, for
example, will use an annual average of 2,9^0 cfs, with
a maximum of 3,400 cfs in summer. If all plants antici-
pated by 1980 used cooling water at the same rate as
Zion, the cooling water use by then could average 17,500
cfs, with a maximum of 20,000 cfs in summer. If evapo-
rative cooling towers had to be used for all of this
water and there were a two percent loss of water by
evaporation, the total water evaporated would be 400 cfs
in summer. If power production continued to double and
evaporative cooling towers were used for all cooling
water, the rate of evaporation by the Year 2000 could be
1,600 cfs.
Dry cooling towers are feasible but less
efficient and more costly than evaporative cooling tower
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F. ¥. Kittrell
The alternatives for disposal of cooling
water, and their potential advantages and disadvantages
appear to be:
1. Use of evaporative cooling
towers and other off-lake cooling devices.
Least thermal effect on lake water quality
and uses. Maximum diversion of lake water
by evaporation.
2. High velocity dispersion
through submerged devices well out into
lake. Minimal immediate thermal effect
on water quality and uses; but maximum
addition of heat and increase in lake tem-
perature on long-term basis. Minimum
evaporation of heated water.
3. Low velocity discharge to
surface at shoreline to float water on
surface. Maximum potential for damage to
aquatic life along the shoreline. More
diversion of lake water by evaporation
than high velocity dispersion and mixing;
but less addition of heat to lake on long-term
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F. W. Kittrell
basis.
Unfortunately, the present state of the
art does not allow quantitative estimates of the various
potential effects of heated waste discharges on a body
of water as complex as Lake Michigan.
Much can be learned of effects of heat
on lake water by investigations of aquatic life in the
vicinity of existing fossil fuel power plants.
Radionuclides are produced in reactors
by both fission of nuclear material and by neutron
activation of reactor materials, of minerals in the watei
used as a coolant to produce steam, and of the hydrogen
of the water itself. The nuclides thus produced find
their way into the waste stream through leaks in various
types of equipment and from the laboratory and laundry.
Treatment by detention and decay, sedi-
mentation, filtration, evaporation and demineralization
reduces all radionuclides except tritium to very low
levels. Tritium is radioactive hydrogen that is incor-
porated in the water and is not removed by any of the
treatment processes. Fortunately, tritium is one of the
least hazardous of all radionuclides and has one of the
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P. W. Kittrell
highest maximum allowable limits in drinking water
-3
(3 x 10 jac/ml). Estimated discharge of all radionuclid
except tritium, from all proposed nuclear power plants
total less than one curie per year. Experience at four
of six relatively small plants already in operation,
however, has shown discharge of radionuclides ranging
from 1.3 to 11.1 curies per year. Tritium discharged
by the six plants ranged from five to 1,300 curies per
year. The radioactive wastes of the six plants, after
treatment, were in volumes ranging from 208 to 4,820
gallons per day.
The treated radioactive wastes will be
diluted in the large volumes of cooling water for final
disposal to the lake. Discharge will be by batches
after each batch has been sampled and analyzed. Dilutio
in the cooling water is estimated to bring the radio-
nuclide concentrations down to 10 to 20 percent of the
permissible limits specified in the Atomic Energy Com-
mission's 10CFR20 regulations. The States standards
generally require that radionuclid'e concentrations compl
with the Public Health Service Drinking Water Standards.
Compliance with the AEC 10CFR20 regulations will ensure
;s
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F. W. Kittrell
compliance with the PHS Drinking Water Standards.
A basis for evaluation of the possible
effect on the lake as a whole is that 49,000 curies of
radioactivity would have to be present to give a con-
centration of 10~" uc/ml (10 percent of permissible
-v
level), or 490,000 curies for a concentration of 10
uc/ml. Nearly 1.5 billion curies of tritium would be
required to equal the permissible concentration for
this radionuclide in the lake. There is no cause for
concern for the effects of radioactive wastes on the
lake as a whole.
There is a possibility of concentration
of radioactivity locally in the aquatic life that serves
as the food chain for fish, with a potential hazard to
those who eat fish from the lake. Experience with
wastes from smaller nuclear power plants discharging
to streams in Illinois and Wisconsin and to the lake
in Michigan has not revealed such a problem, "but it is
one that must be evaluated when the larger plants go
into operation on the lake.
The policy of AEG and the States that
radioactive wastes in the environment must be kept to
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F. W. Kittrell
the lowest practical level requires that radioactive
discharges from the nuclear power plants be held to the
minimum feasible quantities.
Review of available literature, attendance
at national symposia on thermal pollution, and discussior
with various consultants in the field have revealed many
gaps in knowledge of the effects of thermal wastes on
water quality and uses and of preferable means of dis-
posal. There is an urgent need for investigation,
especially biological, of the effects on Lake Michigan
of heated wastes discharged from existing fossil fuel
power plants.
There also is a need for acquisition of
data on present water quality and aquatic life in the
vicinities of the proposed nuclear power plants to provic
a basis for evaluation of effects of the wastes after
the plants go into operation. Various power companies,
and consultants, and Federal and State agencies presently
are making more or less independent investigations. All
of these investigations should be coordinated to the
maximum extent possible.
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F. W. Kittrell
RECOMMENDATIONS
It is recommended that:
1. All power plants, both nuclear and
fossil fuel,meet the waste disposal requirements and
water quality standards of the States in which they are
situated.
2. Design personnel for all future power
plants consider or evaluate the possible subsequent
addition of off-lake cooling devices, extended cooling
water effluent lines with submerged, high velocity dis-
charges, and other methods of controlling effects of
thermal wastes on the lake so that such devices can be
added if found to be necessary.
3. Radioactive liquid wastes discharges
to the lake be kept to the minimum feasible.
4. Individual States ensure that adequat
base line data on water quality and aquatic life be
obtained at all proposed power plant sites, and that
adequate post-operational monitoring be provided, and
results be made available to all parties concerned.
5. Coordinated study of the thermal
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F. ¥. Kittrell
effects on water quality and aquatic life of one or
more fossil fuel plants now discharging cooling water
to Lake Michigan, and of various methods of cooling
water dispersion be undertaken by FWPCA.
6. FWPCA coordinate a comprehensive
study of the effects on water quality and aquatic life
of thermal wastes from a large nuclear power plant on
Lake Michigan, with attention to various methods of
cooling water dispersion.
7. FWPCA coordinate a study of the
effects on water quality and uses of radioactive wastes
from a large nuclear power plant on Lake Michigan, with
especial attention to the concentration of radionuclides
in aquatic life.
8. The Atomic Energy Commission be
requested to coordinate the development of a plan for
the State-agencies, the FWPCA, the U. S. Public Health
Service and other appropriate agencies, for emergency
methods to deal with accidental radioactive releases
(gaseous as well as liquid) on Lake Michigan, including
an inventory of appropriate laboratory and evaluation
resources.
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F. W. KIttrell
APPENDIX A
RECOMMENDED PLANOFSTUDY
in t h eV ciri i t e so f
PROPOSED NUCLEAR POWER PLANTS
The objectives of the recommended study
are to:
1. Obtain pre-operation data
on water quality and aquatic life in the
vicinities of proposed nuclear power plants.
2. With the pre-operation data
as a basis, determine and evaluate the
effects of thermal and nuclear wastes on
water quality and uses after the plants
go into operation.
The recommended plan presumes the active
cooperation of interested Federal and State agencies and
of the appropriate power companies. The Federal Water
Pollution Control Administration is considered the prope
agency to coordinate the participation of the various
agencies .
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F. W. Kittrell
An attempt has been made to incorporate
all possible details that might be useful in a study.
Some revision undoubtedly will be necessary to fit the
plan to available facilities, and to adapt it to local
circumstances and conditions. The portions of the pro-
posed plan involving thermal effects can be adapted to
a study of effects of fossil fuel plants on aquatic life.
If studies of thermal effects of fossil fuel power plants
should prove that there is no reason for concern over
thermal effects of nuclear power plants, the portions of
the outline dealing with thermal effects can be eliminate
in studies of nuclear plant wastes.
STUDY PLAN
I. Preliminary examination.
A. Determine existing currents (FWPCA has con-
tinuous directional current records that
may be used).
B. Estimate area that will be affected by thermal
wastes.
C. Determine nature of bottom in area expected
to be affected.
D. Select and mark sampling stations by submerged
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F. W. Kittrell
floats with anchors, or some other device,
that will ensure subsequent correct location
when sampling.
E. Locate and arrange for sampling points at
areas of special water use, such as water
supply intakes.
II. Bottom Samples.
A. General
1. Types of samples.
a. Bottom organisms.
b. Bottom sediments.
2. Station Locations.
a. At least 10 random stations
for each type of bottom (sana,
clay, gravel, rock, etc.).
3. Sampling Equipment.
a. Dredge suitable for type of
bottom involved (Petersen,
Ponar, etc.).
4. Sampling Frequency.
a. Once at each station in May
and in October of each year.
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F. W. Kittrell
B. Bottom Organisms.
1. Determine kinds and numbers of
each kind.
2. Combine bottom organisms and
determine radioactivity.
a. Gross alpha and beta scan
b. Gamma scan.
(1) Identify individual
radioisotopes.
c. Radium-226*
(1) One or two samples
each sampling time.
d. Strontium-89 and -90.
C. Bottom Sediments.
1. Determine radioactivity.
a. Gross alpha and beta scan,
b. Gamma scan.
(1) Identify individual
radioisotopes.
*Not a reactor waste constituent, but a factor is
natural background.
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F. ¥. Kittrell
c. Radium-226.
(1) One or two samples
each sampling time.
d. Strontium-89 and -90.
e. Total uranium.
(1) One or two samples
each sampling time.
III. Artificial Substrate Biological Samples.
A. Station Locations (four total).
1. One at point of cooling water dis-
discharge.
2. Two near shore, in opposite direc-
tions from point of discharge.
3. One about one-quarter mile offshore
opposite point of discharge.
B. Sampling Equipment.
1. Anchored artificial substrate of
suitable material floating submerged
at uniform depth appropriate to
avoid navigation.
C. Sampling Frequency.
1. Place substrates in April, July,
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F. W. Kittrell
October and January (if possible).
2. Remove about one month later (if
some other period selected, removals
should be at a uniform period).
D. Determinations.
1. Count and identify bottom organisms.
2. Identify and quantitate periphyton.
3. Determine radioactivity of mixed
organisms.
a. Gross alpha and beta scan.
b. Gamma scan.
c. Radium-226.
(1) One or two samples at
each sampling time.
d. ,Strontium-89 and -90.
IV. Plankton Samples.
A. Sample Locations (four total).
1. At same locations as artificial
substrates.
B. Sampling Frequency.
1. At same times as artificial sub-
strates placed or removed.
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F. W. Kittrell
C. Determinations.
1. Count and identify plankton, using
Sedgwick-Rafter cell.
2. Determine radioactivity.
a. Gross alpha and beta scan.
b. Gamma scan.
(1) Identify individual
radioisotopes.
c. Radium-226.
(1) One or two samples each
sampling time.
d. Strontium-89 and -90.
V. Fish Studies.
A. Gill net sampling.
1. Station Locations.
a. Two, one-quarter mile each
direction from point of cool-
ing water discharge.
b. From five-foot depth near
shore, extending 400 feet
into lake, perpendicular to
shore.
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F. W. Kittrell
2. Sampling Equipment.
a. Gang gill nets with follow-
ing sections:
(1) 200 feet of 2-1/2" mesh.
(2) 100 feet of 1-1/2" mesh.
(3) 100 feet of 1" mesh.
3. Sampling Frequency.
a. Four times yearly (at times
of either placing or removing
artificial substrates for bio-
logical samples).
b. Nets in place two days between
setting and lifting.
4. Determinations.
a. Kinds and numbers of each kind
of fish.
b. Size and weight of each.
c. Age of each.
d. Radioactivity of fish flesh.
(1) Gross alpha and beta scan.
(2) Gamma scan.
(a) Identify individual
radioisotopes.
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F. W. Kittrell
(3) Radium-226.
(4) Strontium-89 and -90.
B. Shoreline observations.
1. Area.
a. Along shore, in each direction
from point of cooling water
discharge, as far as warm
water extends or is expected
to extend (possibly one to
four miles, depending on
method of discharge of cooling
water, whether mixed quickly or
floated on surface of lake).
2. Frequency.
a. Four times yearly (during gill
net observations).
3. Observations.
a. Record kinds and estimated
concentrations of fish visible
from shore.
b. Fishing and spawning areas.
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P. W. Kittrell
VI. Wildlife Observations.
A. Area.
1. Visible from shore in each direc-
tion from point of discharge as far
as warm water extends or is expected
to extend.
B. Frequency.
1. Four times yearly.
2. At times of fish studies.
C. Observations.
1. Kinds and concentrations of water
fowl.
a. Locations in regard to warm
water.
b. Feeding habits.
(1) Dead fish.
(2) Live fish.
(3) Bottom foods.
VII. Shoreline Observations.
A. Observe shoreline at point of cooling water
discharge and in each direction from this
point as far as temperature change is
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F. ¥. Kittrell
anticipated. (Suggest as much as four miles
in each direction if cooling water floated
on surface, and one mile if cooling water is
mixed rapidly by high velocity dispersion.)
B. Frequency of Observations.
1. Four times yearly.
2. Preferably in May, August, November
and February (if possible, since these
will be convenient times to remove
artificial substrates).
C. Observations.
1. Aquatic growths of interest.
a. Gladophora especially.
(1) Distance along shoreline
this filamentous algae
grows.
(2) Rough approximation of
quantity, as "Abundant,"
"Moderate," or "Sparse."
(3) Approximate length of
filaments or of massed
growth.
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666
F. W. Kittrell
VIII. Water.
A. Types of Studies.
1. Temperature.
2. Radioactivity.
3. Other.
B. Temperature.
1. Before power plant in operation.
a. Continuous records.
(1) Point of cooling water
intake.
(2) Point of cooling water
discharge.
(a) Presumably repre-
sentative of ambient
temperature of water
in area adjacent to
power plant.
2. After power plant in operation.
a. Continuous records (FWPCA
has temperature recorders).
(1) Influent cooling water.
(2) Effluent cooling water.
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667
F. W. Kittrell
Spot determinations (preferably
continuous recorders if enough
instruments available).
(1) Grid of stations on one-
quarter mile centers, per-
manently marked, in area
extending one mile into
lake and four miles up and
down shore from point of
cooling water discharge.
(2) Sample once weekly until
various patterns of cooling
water plume have been estab-
lished, and once monthly
thereafter (unless continuous
recorders available).
(3) Determine temperatures in
cooling water plume and
boundary water only, on
day of sampling.
(4) Determine temperature at
surface, five-and ten-foot
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668
F. W. Kittrell
depths at each station in
plume, or at such depths
as necessary to establish
depth of plume.
C. Radioactivity.
1. Before power plant in operation.
a. Sampling points.
(1) Point of cooling water
discharge.
(2) Point or area of any
special water uses.
(a) Water supply.
(b) Bathing beaches.
(c) Other.
b. Sampling Frequency.
(1) Monthly grab sample
at stations.
c. Determinations.
(1) Gross alpha and beta.
(2) Gamma scan.
(a) Identify individual
radioisotopes.
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669
F. ¥. Kittrell
(3) Radium-226.
(a) One or two samples
each sampling time.
(4) Total Uranium.
(a) One or two samples
each sampling time.
(5) Tritium.
2. After power plant in operation.
a. Sampling points.
(1) Influent cooling water.
(2) Effluent cooling water.
(3) Special water uses.
(a) Water supply.
(b) Bathing beaches.
(c) Other.
b. Sampling Frequency.
(1) Daily grab samples com-
posited for one week.
(a) Ensure that grab
samples include
representative
portions of batch
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670
F. ¥. Kittrell
radioactive waste
discharges.
c. Determinations.
(1) Gross alpha and beta.
(2) Gamma scan.
(a) Identify individual
radioisotopes.
(3) Radium-226.
(a) One or two samples
each sampling time.
(4) Total Uranium.
(a) One or two samples
each sampling time.
(5) Tritium.
D. Other.
1. Studies for other constituents such as
bacteria, boron, algicides, etc., not
specified, but to be fitted into pattern
of and coordinated with temperature and
radioactivity studies.
2. One or two sets of samples should be
analyzed for dissolved oxygen to determine
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671
F. W. Kittrell
whether Increased temperature of cooling
water significantly affects dissolved
oxygen. Discontinue if no significant
effect is found.
APPENDIX B
Temperature Increase in Lake Michigan
Due to Thermal Discharges from
Electrical Power Facilities
John P. Longtin, Physicist
Physical and Engineering Sciences Section
Technical Advisory and Investigations Branch
Division of Technical Services
Federal Water Pollution Control Administration
U. S. Department of the Interior
November 1968
-------
572
The following approach to predicting the temperature ele-
vation of Lake Michigan due to thermal discharges from electrical
power facilities is based on work published by Veltz and Gannon (l).
The calculation is intended only to provide a crude estimate of the
order of magnitude of the temperature elevation. It assumes instant
mixing and thus ignores localized effects. However, the assumption
of instant mixing does tend to make the estimate conservative.
Essentially the method considers heat additions and losses
from various sources such as convection, radiation, and evaporation.
The nomenclature used is as follows:
AH = net rate of heat gain or loss (BTU/hr - sq.ft.)
He = rate of heat loss by evaporation "
Hc = rate of heat loss by convection "
Hr — rate of heat loss by radiation "
HS — rate of heat gain by solar radiation "
fy — rate of heat addition from electrical
power facilities "
Ly = latent heat of vaporization for water (BTU/lb)
Vw — vapor pressure of water (in Hg)
V& = vapor pressure of water in air "
TW = water temperature (*F)
Ta = air temperature (*F)
T^, T2 = equilibrium water temperatures (*F)
W = wind velocity (mph)
C = a constant varying for different
water bodies (for large deep lakes,
C = 10)
-------
573
B-2
The various heat rates are calculated from empirical rela-
tions presented by Veltz and Gannon (l). They are as follows:
He = 0.00722 CLyU + 0.1W)(VW - Va) (l)
Hc = (0.8 + 0.16W)(TW - Ta) (2)
Hr = 1.0 (Tw - Ta) (3)
At equilibrium, the net heat gain or loss is zero, and the
rate of heat lost is equal to the heat gain. Therefore, for an
equilibrium temperature T]_ and no thermal contributions from power
facilities,
AH = HS1 - Hei - HCl - H^ = 0. (4)
If now, for purposes of comparison, all conditions are kept
the same except that an addition term representing the heat added
by power facilities is included, a new equilibrium temperature T£
will be defined by
AH = HS2 - He2 - HC2 - Hr,, + {> = 0.
The result of combining the two expressions is,
(HS1 - HS2) + (He2 - Hei) -f (HC2 - HCl) + (Hr2 - H^) -
-------
67^
B-3
The evaporation term is given by Equation 1. To solve for
a temperature or a temperature difference, the temperature must be
explicit. This is not the case for Equation 1, but a Taylor ex-
pansion of the temperature dependent terms can be used. The two
terms which are dependent on temperature are the latent heat of
vaporization for water and the vapor pressure of water. It follows
that,
dL/T)
dT
(T - Tj +
and,
dV (T)
w
dT
(T - TQ)
With a small temperature change, the terms of order higher than one
in the expansion may be neglected. Further, the following approxi-
mation can be used:
dT
T = T
T - T,
T = T
and,
dVw(T)
dT
T = T.
VW(T) - Vw(
T - T,
AT
T = T
To obtain values for these approximations, the following
data are used (2). Assume a water temperature of 50*F.
-------
575
Temperature (°F) Vw(in Hg)
thus,
(BTU/lb)
50 0.362
51.8 0.387
53.6 0.414
^ „ _L£ . -0.556
^T 1.8
T— T
~ ir>
1062.3
1061.3
1060.4
/ BTU \
r-vj
and,
*w
AT
-' = 0.0139 is
1.8 °F
T = T,
therefore,
and,
L/T) = - 0.556(T-50) + 1062.3 (BTU/lb)
VW(T) = 0.0139(T-50) + 0.362 (in Hg)
Simplifying,
=-0.556T + 1090.1 (BTU/lb)
and,
VW(T) = 0.0139T - 0.333 (in Hg)
-------
B-5
To use Equation 1, it is necessary to know the vapor
pressure of the water in air. To arrive at this, it is necessary
to assume an air temperature and a humidity. The assumptions used
are an air temperature of 60*F and a humidity of 60%. The follow-
ing relation, taken from Perry's Handbook of Chemical Engineering,
page 765, can be used to determine the vapor pressure (2):
wP
va - 4360 + w
where,
w = moisture content of air (grains/lb)
P = barometric pressure (in Hg)
Using the psycometric chart (Figure 3) on page 765 of Perry's
Handbook, for the conditions assumed, the moisture content is 46
grains/lb. dry air (2). Thus, using the standard atmospheric pres-
sure of 29.92 in Hg,
Va - (46X29.92) = 0.312 in Hg
a 4360 + 46
Substituting the above results into Equation 1 yields after
simplification,
He = (1.0 + 0.1WX-5.68 x 10~4 T2 + 1.120T - $0.76) (7)
Substituting Equations 2, 3, 6, and 7 into Equation 5 results
in,
(1.040.lW)(-5.6SxlO-4(T22-T12)+1.120(T2-T1) ) +(l.8-K>.l6W)(T2-T1)- = 0
But, for small temperature changes,
T22 - Tj2 = (T2 - TX)(T2 + T-^ - 2T1(T2 - T-^
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677
B-6
i
Letting AT = T2 - T-^ it follows that,
(1.0 + 0.1WX-1.136 x 10~3 T-jAT + 1.120AT) -f (1.8 + 0.16W)AT - (J) = 0
and,
AT = _ _ __
(1.8 + 0.16V/) -f (1.0 + 0.1W)(-1.136 x lO"3 -I- 1.120)
The total heat input into the lake from power facilities is
estimated to te 6.88 x lO1^ BTU/year. The area of the lake is
2.24 x IcA square miles.
Thus,
__ _
365(d/yr)x24(hr/d) 2.24xlO^(sq.mi. )(5280)<:(sq.ft./sq.mi.
and,
(}) = 0.126 BTU/hr-sq.ft.
For a water temperature of 50 *F and no wind,
AT = 0.126
1.8+1.0 (-1.136x10-^(50 Hi. 120)
and,
AT = O.OU °F.
For a wind velocity of 1 mph,
353-39
-------
673
B-7
,AT = 0.126
(1.840.16) -I- (1.OK).!)(-!. 136x10-3(50)+!. 120)
and,
AT = 0.040 *F
The following table lists the temperature elevation for
various wind velocities (these are at equilibrium),
Wind velocity T
(mph) (T)
o 0.044
1 0.040
3 0.034
5 0.030
10 0.023
It should be noted that, for a given set of conditions, the
temperature elevation is directly proportional to the heat added.
Thus, if the heat addition from electrical power facilities were to
double from that used in this calculation, the temperature elevation
would be twice that shown here. The temperature elevation is inversely
proportional to the surface area of the lake. Thus, if only half of
the lake were to be considered, the temperature change would be
doubled.
It should also be pointed out that, for this particular
technique, the result is not very sensitive to changes in values of
air temperature, humidity, and barometric pressure. This means that
the assumptions used for these values were not critical. The assump-
tions regarding the small temperature elevation are justified by the
results.
In conclusion, the temperature elevation of Lake Michigan
resulting from the thermal addition of existing and proposed elec-
trical power facilities is crudely estimated to be 0.05 "F.
-------
679
B-8
Note
The assumption that, under identical meteorological con-
ditions, Hs = Hg can be supported by considering the Stephan-
Boltzman law of radiation between two bodies (3).
R . CCT-J4 - T24)
where,
R - net radiated energy
C *= constant
T, — absolute temperature of the warmer body
T£ = absolute temperature of the colder body
Considering that the sun has a surface temperature of about
6000* Kelvin, and the lake temperature is about 300* Kelvin, it is
seen that the temperature of the lake has little effect on the net
radiated solar energy. Thus, the heat gained from solar radiation
is primarily dependent on meteorological conditions.
-------
600
F. W. Kittrell
Bi/b^l^i^ography
1. Veltz, C. J., and Gannon, J. J.,
"Forecasting Heat Loss in Ponds and Streams." JFPCF,
Vol. 32_* No- 4> P- 392. (I960)
2. Perry, John M. (ed.), "Chemical
Engineers' Handbook." McGraw-Hill Book Company, Inc.,
New York, 3rd ed. (1950)
3. Richtmyer, F. K., Kennard, G. H.,
and Lauritsen, T., "introduction to Modern Physics."
McGraw-Hill Book Company, Inc., New York, Fifth Ed.,
p. 110. (1955)
MR. STEIN: Thank you, Mr. Kittrell.
Are there any comments or questions?
MR. KLASSEN: I .just want to comment
that this is quite a comprehensive report. Before I
as a Conferee would want to accept this, there would be
a few additions that I think ought to go in here.
It seems as though the Committee approached
this with the idea that thermal pollution is something
-------
681
F. W. Kittrell
«
detrimental. Maybe it is. But I would like to know
whether there are any beneficial effects on the aquatic
life.
From one statement you made, you said
the heated water, warmer water, would encourage the
growth of undesirable biological life. I am no biologis
and, therefore, I can't argue with you, but I am just
not too sure that this is a conclusion.
MR. KITTRELL: Well, we said it might.
We didn't say it would.
MR. KLASSEN: All right, you took my
next point.
All the way through here "possibly it
could", "it might", this isn't very helpful to those of
us who have got to say yes or no to a concern.
Another point in here, instead of throw-
ing away all this heat by suggesting other methods of
wasting it and dispersing it, I think that this Committe
could also address itself into how are we going to use
this tremendous amount of energy that is in here. It
might sound wild, but possibly it could be piped to a
nearby town and heat all the houses, for example.
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____ 682
F. W. Kittrell
I don't know. There might be other things.
I think we have approached this, and this
is, I think, in the category of detergents and a number
of other things, with the idea—and I don't say deter-
gents are good—but with the idea that thermal pollution
is something bad. Maybe it is. We don't know. But I
think that we ought to evaluate all aspects of it.
We have some reason to believe—and we
have had a lot of experience with this on the Illinois
River, with the largest nuclear power plant in the
world, unless the Russians have a bigger one.--there is
some evidence that the biological life that is involved
in the regeneration in a stream and the natural puri-
fication is moved up instead of downstream, it has moved
up closer to the outlet, a possible advantage of thermal
wastes.
I would just like to see this Committee
address itself to the other side and see if there isn't
something good that we can find in this large amount of
heated water that we are trying to find ways of throwing
away.
MR. KITTRELL: I might add that it has be
n
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683
F. W. Kittrell
thought that some of the heated water might be piped in
there for swimming areas, made useful for swimming pur-
poses .
MR. KLASSEN: This is right. Since you
have raised this question, the discharge from the Zion
plant will be several hundred feet north of one of our
State parks, and the former Director of Conservation
said it could be an advantage in that it would permit
swimming much later in the year than it does now. Last
year there were five days when the temperature of the
lake, even in the summer, was suitable. This might be
another advantage.
The other thing, and this is another
comment, I would want to restudy some of your recommen-
dations here. And believe me, Mr. Chairman, I am not
getting into the question of another jurisdiction. But
I question whether we want the Atomic Energy Commission
to coordinate the development of a plan of State agencie
in all of this. I think this is kind of whistling in
the•dark.
We already have a plan in Illinois, we
work very closely with AEC, but I think there is too
-------
684
F. W. Kittrell
much Federal agency coordinating some of these things
when I am not too sure that this is what they wanted to
do or it should be done.
MR. STEIN: Any other comment?
Mr. Purdy.
MR. PURDY: Kit, in your calculations
you indicate a warming of five-hundredths of a degree
Fahrenheit per year. It is my understanding that in
the southern basin there is complete cooling in the
wintertime. Tlhat is from top to bottom the southern
basin cools to roughly 2.3 degrees Centigrade from top
to bottom, which would indicate that any residual heat
from the summer period would be lost during the winter
period in this southern basin.
Would your calculations indicate that
there would be enough heat added so that you wouldn't
lose this residual heat in the wintertime in the
southern basin?
MR. KITTRELL: Well, this was my first
opinion. I am no expert on thermodynamics, but several
of the more recent college graduates who were involved
sat on me real hard on that and said there will be some
-------
F. ¥. Kittrell
residual heat carried over and it will be accumulated
until it reaches a new equilibrium. I have to accept
their word on this. I felt exactly the way you do at
first.
MR. PURDY: I would like to lean on your
long years of experience, Mr. Kittrell.
MR. KITTRELL: How is that?
MR. PURDY: I say I would like to lean
on your long years of experience in this field.
MR. KITTRELL: Well, as I say, I had no
thermodynamics in college, so I bowed to the opinions
of others who have had this sort of education much more
recently.
MR. PURDY: I think this is a question
that needs exploring before this conclusion is made a
part of the record.
Not as a question but as a comment, for
those of us that are faced with setting restrictions,
I think your report places this clearly in focus when
you state that, "Unfortunately, the present state of the
art does not allow quantitative estimates of the various
potential effects of heated waste discharges on a body
-------
686
F. ¥. Kittrell
of water as complex as Lake Michigan."
That is all I have, Mr. Chairman.
MR. STEIN: Thanks.
Are there any other comments or questions?
To take up what Mr. Klassen said, Mr.
Kittrell, when you talked about the increase of two
degrees by 2023, two degrees Fahrenheit, you say, "This
increase would nullify a 2.0°F decrease in average
annual temperature of the lake that has occurred,
apparently from natural causes, in the past 100 years."
The question again that Mr. Klassen
raises is, is this good or is this bad? Supposing
the computations are correct. I do know that we have
one situation that has happened in a much shorter
range of time. The temperatures around Maine in the
ocean have dropped seven degrees over a much shorter
period of time and because of that the lobsters are
not growing as fast, as you can tell by checking the
price of a lobster in a restaurant these days. One
of the projects that came in--I don't believe it was
approved—was to try to use the heated water from one
of these thermal nuclear plants to raise the temperature
-------
68?
F. W. Kittrell
of the water so it would be more nearly the temperature
where the lobsters would produce flesh more rapidly.
Again, we get to the question of whether,
per se, in any or all environments, a lower temperature
is the desired condition or whether we should have it.
I don't know. I just raise this. I know when you have
a balanced environment, any change up or down is going
to shift that one way or the other.
MR. KITTRELL: I guess it was Clarence
who said he is no biologist. Mackenthun was very con-
cerned that any significant increase in temperature
might cause an outbreak of Cladophora. This is one
of the things that Jimmy Vaughn mentioned this morning--
that he had trouble with the Cladophora at the water
intake already.
MR. STEIN: Now, if that is the case,
again, I want to put this as delicately as I can.
What I was afraid of and the difficulty with one of
these committees you set up is that the traditional or
almost cliche result that they come up with, after spend-
ing six months looking at and studying the problem, their
main conclusion is: "What we need is a further study."
-------
688
F. ¥. Kittrell
And I think in large measure that is what we have here.
You say, "There is an urgent need for
investigation, especially biological, of the effects on
Lake Michigan."
"There is also a need for acquisition of
data on present water quality and aquatic life," and so
forth.
Then several of the recommendations you
have, "FWPCA coordinate"--! don't know who they are
supposed to coordinate--"a comprehensive study of the
effects on water quality and aquatic life."
"FWPCA coordinate a study of the effects
on water quality and uses of radioactive wastes from a
large nuclear power p'lant on Lake Michigan, with especial
attention to the concentration of radionuclides in'
aquatic life." Which may be the same which may be a
little different on the specifics.
But what the Committee has come up with
after all this time is a recommendation for further studije
MR. KITTRELL: That is quite right.
MR. STEIN: Well, again, you see, if
Mackenthun, who is about as good an aquatic biologist
-------
689
F. W. Kittrell
as I know of, thinks that a rise in water temperature
or effects from a thermonuclear plant, or any other
powerplfcnt, is going to create a condition which might
cause the growth of Cladophora, which is an algae, as
some of you may know, in the lake, and if this is the
case and if this is put out, I think this is something
that the Conferees can get their teeth into.
But again the notion is--and I say this
on the basis of experience, and, Kit, you have been
around at least as long as I have—that if we coordinate
a comprehensive study or coordinate a study on the
effects of water quality as recommended, there is no
assurance that the results of this won't be a recommenda
tion to come up with another study. This can go on for-
ever .
MR. KITTRELL: I don't have anything to
do with that, Murray. I will be retired by then.
(Laughter.)
MR. STEIN: I understand that. But let
me ask you one more specific point on this.
Point 3. "Radioactive liquid wastes
discharges to the lake be kept to the minimum feasible."
-------
690
F. W. Kittrell
Did you ever consider not putting any in
at all?
MR. KITTRELL: I tried to get the Committ4e
to make such a recommendation, but I was unable to.
MR. STEIN: All right. I thought you
might have. There is no collusion on this.
This is always a question. The point is
if salt is going to get in the lake, as Jim Vaughn point*
out, it is not going to get out. If radionuclides
get into the lake, however small they are, given their
long-term half life, some over thousands of years, we are
going to be stuck with them a very long time too. What
is the notion of putting any in2
MR. KITTRELL: I don't get your question.
MR. STEIN: Well, the problem that I have
with this is we have had a lot of testimony before this
Conference and other conferences,before Congressional
hearings,and in the newspapers about putting dredged
material in the lake and dredged material that is pre-
sumably inert and benign, and you might have the point
we are not cleaning up the lake just to make it a dump
and put it in the lake.
-------
691
P. W. Kittrell
Now, if we have this kind of situation
with inert dredged material that the Corps is taklrig
out, how do we come up with a notion of putting any
radioactive discharges into the lake at all? If we
are keeping out some rock or someone is making a move
to keep out some rock that the Corps is chipping away
from the outside of the harbor and dumping it in the
lake where there is no demonstratable harm, how can we
come up with a recommendation that there should be
radioactive wastes discharged to the lake, however small?
I am .just asking you that.
MR. KITTRELL: Well, as I say, I favored
such a recommendation.
MR. STEIN: All right.
MR. KITTRELL: You will have to talk to
the rest of the Committee.
MR. STEIN: Are there any other comments
or questions?
If not, thank you very much.
We may be into trouble with this room,
and I am debating two things. We don't have too many
more points and we are supposed to be out of here by
-------
692
M. Stein
5 o'clock, but maybe we can stretch that. I think the
better part of valor, though, is to take a very short
recess. I am asking everyone to take a 10-minute recess
so we can get back here and not overdo our welcome and
have a battle with them. If we just take 10 minutes
and come back, I think we will be able to be finished
just a little after 5.
We will stand recessed for 10 minutes.
(RECESS)
MR. STEIN: Let's reconvene.
The next problem we will take up is the
pesticide evaluation, the report of the Committee.
Mr. Poston.
MR. POSTON: Dr. Mount, Director of our
National Water Quality Laboratory in Duluth, will make
this presentation.
-------
693
D. I. Mount
STATEMENT OF DONALD I. MOUNT, Ph.D.,
CHAIRMAN, LAKE MICHIGAN ENFORCEMENT
CONFERENCE PESTICIDES COMMITTEE
DR. MOUNT: Mr. Chairman, and Conferees,
I have one disadvantage that Mr. Kittrell didn't have
and that is that I don't retire in a few years. (Laughte
I have prepared a summary of the Pesti-
cides Committee report, which is some 44 pages in length
MR. STEIN: Without objection, that repor
will be entered into the record as if read.
DR. MOUNT: And I will also try to delete
some parts of the summary, even, for the sake of time.
The Pesticides Committee created by the
Four-State Conference on pollution of Lake Michigan was
composed of representatives from each of the four States
in the drainage basin, one FWPCA representative who also
served as Chairman, one representative from the Bureau
of Sports Fisheries and Wildlife and one from the Bureau
of Commercial Fisheries. Four regularly scheduled
meetings, three of them two days in length, were held
-------
694
D. I. Mount
and substantial work was done by the individual members
between meetings in order to formulate the report we
have submitted. Although the charge of this Committee
was to examine the question of pesticide pollution in
Lake Michigan, the Committee limited its report to
insecticides since it could find no evidence that pesti-
cides other than insecticides were of significant impor-
tance in the lake. We wish to emphasize that this
statement is based on extremely limited information
that was available regarding the use of pesticides in
the Lake Michigan drainage basin. The members were
impressed early in their work by the near total lack of
information as to what insecticides are being used and
in what quantities. We believe that the collection of
this information is of utmost importance if we are to
evaluate the size and magnitude of the pesticide problem,
Before formulating any recommendations,
the Committee identified the extant problems that could
be recognized at the present time. These problems are:
(a) the presence of insecticides, especially DDT and
dieldrin, in lake water; (b) potential involvement of
DDT in coho salmon reproduction; (c) effects of
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695
D. I. Mount
*
insecticides on gull reproduction; (d) levels of dieldrin
in fish flesh approaching the limit recommended by the
Food and Drug Administration; and (e) possible involve-
ment of DDT in the failure of mink to reproduce when fed
fish from Lake Michigan.
The following letter was written by the
Committee to the United States Food and Drug Administra-
tion to seek advice regarding possible impact of pesti-
cides in Lake Michigan on human health.
I will not read that letter, but in
essence it asks advice from the Food and Drug Administra-
tion as to whether there are any established tolerances
on fish used for human consumption from Lake Michigan.
If not, are there any plans to establish tolerances and
for any additional advice that they might have regarding
the impact on human health.
The answer, which is on page 4, I will
not read either for the sake of time, but in essence
it says that there are at present no tolerance levels
and that there have been no applications to establish
tolerance levels, but that there are provisions under
certain sections to establish them should they be deemed
-------
D. I. Mount
necessary.
They further state that while there are
not tolerance levels, there are levels which are recog-
nized as being sufficient to warrant legal action and
these are given as 0.3 parts per million of aldrin,
dieldrin, endrin, heptachlor or heptachlor epoxide
present in the edible portion of fish.
The Committee was especially interested
in the comments of the Food and Drug Administration,
since by data available to the Committee that had
previously been collected we realized that the levels
were approaching those that are commonly accepted as
being in doubt.
Each of the State representatives
attempted to gain some reasonable concept of the quantit
and type insecticides used in the Lake Michigan drainage
This information obtained is not very reliable, but we
believe it is the oest that can be obtained at this time
This information,, of course, is in the full report.
The principal insecticides of concern appear to be DDT,
.dieldrin, including ftldrin which is converted to dleldrin
CJhlordane and t'oxephene. It is important to emphasize
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D. I. Mount
that apparently less than half of the insecticides used
in the United States are used for agricultural purposes
and one must not ignore industrial and domestic use of
insecticides. It is further important to note that the
treatment of Dutch Elm disease with DDT undoubtedly
accounts for a very large contribution of DDT to Lake
Michigan. It is common for as much DDT to be applied
to one elm tree as would normally be used on one acre
of cropland; and much of the area surrounding the elm
trees may be paved, and that portion of the insecticide
that falls to the ground can be more readily washed into
the lake than when applied to cropland.
The Committee also attempted to determine
programs already in existence regarding the measurement
of insecticides in Lake Michigan. We found that the
Bureau of Commercial Fisheries, especially the Ann Arbor
Laboratory, the Ontario Water Resources Commission, the
U. S. Department of Agriculture (the National Pesticides
Monitoring Program), the Wisconsin Department of Natural
Resources, and Michigan State University all have active
programs under way which include some measurements of
oesticides in Lake Michigan or the Lake Michigan biota.
-------
698
D. I. Mount
In selecting the monitoring program for
the lake, the Committee attempted to stay within practi-
cal limits of time, money, and manpower and adopted a
four-point approach. These four points involved the
measurement of changes in insecticide levels in (1)
major tributaries (2) minor tributaries (3) Lake Michi-
gan water and (4) commercial and sport fishes of Lake
Michigan. Because insecticides of concern in this
report are toxic at concentrations several orders of
magnitude lower than for more common pollutants, the
Committee has recommended in Table 2 the detection
limits at which pesticides should be measured in various
types of samples. We do not have the information at
this time to say that .001 ug/1 of DDT--which, by the
way, would be one part per trillion — in lake water is
biologically significant, but it is important to measure
this level in order to establish the trend of pesticide
contamination in Lake Michigan. For purposes of a surve;
program, concentrations reported as being less than some
thing are of no value in establishing the trend of the
lake.
The Committee has further recommended a
-------
699
D. I. Mount
continuous sampling program for three-day periods,
twelve times each year, on each of the major tributaries
to Lake Michigan. We recognize that this may complicate
the sampling program to some extent but we believe that
selecting grab samples from such tributaries would be
next to useless insofar as pesticide monitoring is
concerned. It is generally accepted that pesticides
are not uniformly distributed in the water at any point-
in-time nor during different stages of stream flow.
One can see, therefore, how ridiculous it would be to
take a grab sample from each tributary on some scheduled
basis and think that he had properly sampled the contri-
bution of that stream to the lake.
The smaller tributaries recommended for
monitoring are listed in Table 4; because minor tribu-
taries are numerous and the sampling problems difficult,
the Committee is recommending the use of freshwater clams
to monitor pesticides in these streams. The clam sampli ig
method is not an innovation of this Committee, but has
been used by others in estuarian situations and has also
been used by Michigan State University to detect pesti-
cide contamination in lake tributaries. Clams have the
-------
700
D. I. Mount
distinct advantage in that they represent stream con-
ditions for the previous two to three weeks "before the
sample is taken and therefore the problems of irregular
discharge of pesticides are reduced.
The lake sampling program is recommended
to establish the general trend of water concentrations
in Lake Michigan for purposes of the future.
The fish sampling program as recommended
and outlined in Table 5 forms the real basis of the
monitoring program. All of the problems identified in
the Committee's search for existing problems were found
to be problems involving biological magnification of the
pesticides in food chains or human food. Furthermore,
there is not enough information at this time to under-
stand or even estimate the importance of a given concen-
tration of an insecticide such as DDT in the water or in
the bottom sediments. There appeared to be absolutely nc
basis to say that a certain water concentration was too
high or too low unless, of course,, it resulted in direct
toxicity. For these reasons, the Committee decided to
use the concentrations of insecticides in the fish
tissues as being the best sample for monitoring the
-------
701
D. I. Mount
contamination of pesticides in the lake. In the future,
should research efforts establish the meaning of various
water concentrations these, then, could become the basis
for the monitoring program.
The use of limiting concentrations in
the tissues of the fish, as recommended by the Committee
was selected because these levels are practically
achievable. They are similar to existing concentrations
in some of the other Great Lakes and are safe because
no pesticide problems are evident in those lakes where
these recommended concentrations are not exceeded.
We recognize that "standards of accept-
ability" based on concentrations in animals, rather than
in water, may be somewhat new to those concerned with
pollution control. However, we believe that there is
really little difference between basing standards on
tissue concentrations or on water concentrations.
Suggestions are provided in the body of
the report as to laboratories or agencies which might
perform various analyses. The Committee also felt that,
because the measurement of insecticides at the concen-
trations of concern is very difficult and especially
-------
702
D. I. Mount
positive identification of pesticides by techniques such
as infrared spectroscopy, a section in the report should
be included concerning quality control. We are not
implying that quality control is not a necessary part
of any chemical measurement program, but it is of
extreme importance in this particular case because very
low limits of detection are required. ¥e also underline
again the importance of positive identification of the
pesticides in at least some of the samples. Gas chroma-
tography is not a positive identification but rather
some more sophisticated, but well-established, procedure
such as infrared spectroscopy is required.
The research needs as outlined in the
report are also important if the monitoring program is
to be successful. There are many questions which must
be answered before the data provided by the recommended
monitoring program can be properly interpreted and
applied to the practical situation. The research needs
should receive attention as well as the monitoring pro-
gram.
The following five recommendations contai
the essence of the Committee's opinion regarding
-------
703
D. I. Mount
*
monitoring and control of pesticides in Lake Michigan. *
Recommendation No. 1. The concentration
of DDT in the fish should not exceed 1.0 )ig/g; DDD shoul
not exceed 0.5 ^g/gj dieldrin should not exceed 0.1
and all other chlorinated hydrocarbon insecticides, sing
or combined, should not exceed 0.1 jig/g. Limits apply
to both muscle and whole body and are expressed on the
basis of wet weight of tissue.
Recommendation No. 2. Each State should
establish a regulatory authority to control and record
tyoe, quantity and place of insecticide use.
Recommendation No. 3. A Lake Michigan
Interstate Pesticides Committee should be created by
the Conferees to attain uniformity among the States in
pesticide use controls and establish uniform pesticide
concentration limits in fish, water and other aspects
of the Lake Michigan ecosystem.
Recommendation No. 4. The research needs
listed in this report should receive priority equal to
that given to the monitoring program.
Recommendation No. 5. The monitoring
program presented in this report, and modified as needed
-------
704
-<*• D. I. Mount
should be implemented at the earliest possible date and
continue as long as the insecticide hazard exists.
(The following are the documents sub-
mitted by Dr. Mount:)
The Pesticides Committee created by the
Four-State Enforcement Conference on pollution of Lake
Michigan was composed of representatives from each of
the four States in the drainage basin, one FWPCA repre-
sentative who also served as Chairman, one representa-
tive from the Bureau of Sports Fisheries and Wildlife
and one from the Bureau of Commercial Fisheries. Four
regularly scheduled meetings were held and substantial
work was done by the individual members between meetings
in order to formulate the report we have submitted.
Although the charge of this Committee was to examine
the question of pesticide pollution in Lake Michigan,
the Committee limited its report to insecticides since
it could find no evidence that pesticides other than
insecticides were of significant importance in the lake.
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705
D. I. Mount
We wish to emphasize that this statement is based on
extremely limited information that was available regard-
ing the use of pesticides in the Lake Michigan drainage
basin. The members were impressed early in their work
by the near total lack of information as to what insect!"
cides are being used and in what quantities. We believe
that the collection of this information is of utmost
importance if we are to evaluate the size and magnitude
of the pesticide problem.
Before formulating any recommendations,
the Committee identified the extant problems that could
be recognized at the present time. These problems are:
(a) the presence of insecticides, especially DDT and
dieldrin,, in lake water; (b) potential involvement of
DDT in coho salmon reproduction; (c) effects of insecti-
cides on gull reproduction; (d) levels of dieldrin in
fish flesh approaching the limit recommended by the Food
and Drug Administration; and (e) possible involvement
of DDT in the failure of mink to reproduce when fed fish
from Lake Michigan.
The following letter was written by the
Committee to the United States Food and Drug Administrat
on
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]_ 705
D. I. Mount
to seek advice regarding possible impact of pesticides
in Lake Michigan on human health.
May 23, 1968
"Food and Drug Administration
"Washington,D. C. 20204
"Gentlemen:
"As a result of the recommendations of
the Lake Michigan Enforcement Conference a committee has
been established to make recommendations to the Conferee
regarding a monitoring and control program for pesticide
in Lake Michigan. The committee met on May 17 and
requested me to seek your agency's advice concerning
specific questions. It was the feeling of the committee
that there is no evidence for an adverse effect on human
health resulting from pesticide contamination in Lake
Michigan. However, we realize that we are not in a
position to make a decision on this matter and we reques
the opinion of the Food and Drug Administration in regard
to this matter. We would also appreciate your recommen-
dations regarding permissible levels of the important
chlorinated hydrocarbon pesticides that are acceptable
as residues in fish used for human consumption. Finally,
-------
707
D. I. Mount
is there legislation in progress now or expected which
will establish residue levels in fish products used for
human consumption?
"Any other suggestions that the Food and
Drug Administration may have regarding either monitoring
or control will be received with interest and carefully
considered in formulating our committee recommendations.
"Yours truly,
"Donald I. Mount, Ph.D.
"Chairman, Pesticides Committee
"Lake Michigan Enforcement Conference"
The following reply was received from the
Food and Drug Administration in response to our inquiry:
DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
FOOD AND DRUG ADMINISTRATION
WASHINGTON, D. C. 20204
June 4, 1968
"Dr. Donald I. Mount
Chairman, Pesticides Committee
Lake Michigan Enforcement Conference
Federal Water Pollution Control Administration
U. S. Department of Interior
6201 Congdon Boulevard
Duluth, Minnesota 55804
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t 708
D. I. Mount
"Dear Dr, Mount:
"Your letter of May 23 requests informa-
tion on pesticide residue problems associated with Lake
Michigan. We are not in a position to comment on the
effects of pesticide contamination of Lake Michigan on
human health. There have been instances where the
pesticide residue content of fish caught by commercial
fishermen in Lake Michigan have been substantial and
consideration was given to appropriate legal action.
Tolerances for pesticide residues as such, or as food
additives, in fish could be established under Section
408 or 409 of the Food, Drug and Cosmetic Act. No
petitions for tolerances in fish have been submitted,
nor do we have plans to establish tolerances on the
initiative of the Commissioner.
"After giving due consideration to
analytical problems in sampling, sensitivity and reli-
ability attainable in routine analyses, as well as
current knowledge on the toxicology of specific residues
we concluded that legal action is warranted when 0.3 ppm
aldrin, dieldrin, endrin, heptachlor or heptachlor
epoxide, is present in the edible portion of fish.
-------
709
D. I. Mount
This guideline will be reevaluated and changed as
additional information becomes available and is not
to be construed as a tolerance.
"The above figures are applicable only
where there is no history of purposeful use of the
pesticide which would result in residues in fish.
Furthermore, we would not consider these levels accept-
able if a significant proportion of fish marketed con-
tained this concentration of residue.
"in addition to the problem of residues
in fish for human consumption, attention should be given
to the use of fishery products in animal feeds which
might result in residues in meat, milk and eggs.
'V-; are referring your letter and a copy
of our reply to the Federal Committee on Pest Control
for their information. You may wish to seek suggestions
from that Committee, if you have not already done so.
"if we can be of further assistance or
provide additional information on specific questions, we
will be glad to do so."
"Sincerely yours,
"R. E. Duggan
"Deputy Associate Commissioner
for Compliance."
-------
__________ 710
D. I. Mount
Each of the State representatives attempts
to gain some reasonable concept of the quantity and type
insecticides used in the Lake Michigan drainage. This
information obtained is not very reliable, but we believe
it is the best that can be obtained at this time. The
principle insecticides of concern appear to be DDT,
dieldrin (and &ldrin), dhlordane and toxephene. It is
important to emphasize that apparently less than half of
the insecticides used in the United States are used for
agricultural purposes and one must not ignore industrial
and domestic use of insecticides. It is further importan
to note that the treatment of Dutch Elm disease with DDT
undoubtedly accounts for a very large contribution of
DDT to Lake Michigan. It is common for as much DDT to
be applied to one elm tree as would normally be used on
one acre of cropland; and much of the area surrounding
the elm trees may be paved, and that portion of the
insecticide that falls to the ground can be more readily
washed into the lake than when applied to cropland.
The Committee also attempted to determine
programs already in existence regarding the measurement
of insecticides in Lake Michigan. We found that the
d
-------
711
D. I. Mount
Bureau of Commercial Fisheries, especially the Ann Arbor
Laboratory, the Ontario Water Resources Commission, the
U. S. Department of Agriculture (the National Pesticides
Monitoring Program), the Wisconsin Department of Natural
Resources, and Michigan State University all have active
programs underway which include some measurements of
pesticides in Lake Michigan or the Lake Michigan biota.
In selecting the monitoring program for
the lake, the Committee attempted to stay within prac-
tical limits of time, money and manpower and adopted a
four-point approach. These four points involved the
measurement of changes in insecticide levels in (1)
ma.jor tributaries (2) minor tributaries (3) Lake Michi-
gan water and (4) commercial and sport fishes of Lake
Michigan. Because insecticides of concern in this
report are toxic at concentrations several orders of mag-
nitude lower than for more common pollutants, the Com-
mittee has recommended in Table 2 the detection limits
at which pesticides should be measured in various types
of samples. We do not have the information at this time
to say that .001^jg/l of DDT in lake water is biologi-
cally significant, but it is important to measure this
-------
712
j, D. I. Mount
""level in order to establish the trend of pesticide con-
tamination in Lake Michigan. For purposes of a survey
program, concentrations reported as being less than
something are of no value in establishing the history
of the lake.
The Committee has further recommended a
continuous sampling program for three-day periods,
twelve times each year, on each of the ma.jor tributaries
to Lake Michigan. We recognize that this may complicate
the sampling program to some extent but we believe that
selecting grab samples from such tributaries would be
next to useless insofar as pesticide monitoring is con-
cerned. It is generally accepted that pesticides are
not uniformly distributed in the water at any point-in-
time nor during different stages of stream flow. One
can see, therefore, how ridiculous it would be to take
a grab sample from each tributary on some scheduled basi
and think that he had properly sampled the contribution
of that stream to the lake.
The smaller tributaries recommended for
monitoring are listed in Table ^; because minor tribu-
taries are numerous and the sampling problems difficult,
-------
713
D. I. Mount
»«L
the Committee is recommending the use of freshwater >*
claras to monitor pesticides in these streams. The clam
sampling method is not an innovation of this Committee,
but has been used by others in estuarian situations and
has also been used by Michigan State University to
detect pesticide contamination in lake tributaries.
Clams have the distinct advantage in that they repre-
sent stream conditions for the previous two to three
weeks before the sample is taken and therefore the
problems of irregular discharge of pesticides are
reduced.
The lake sampling program is recommended
to establish the general trend of water concentrations
in Lake Michigan as a "trend indicator."
The fish sampling program as recommended
and outlined in Table 5 forms the real basis of the
monitoring program. All of the problems identified in
the Committee's search for existing problems were found
to be problems involving biological magnification of the
pesticides in food chains or human food. Furthermore,
there is not enough information at this time to under-
stand or even estimate the importance of a given
-------
714
D. I. Mount
concentration of an insecticide such as DDT in the water
or in the bottom sediments. There appeared to be
absolutely no basis to say that a certain water concen-
tration was too high or too low unless, of course, it
resulted in direct toxicity. For these reasons, the
Committee decided to use the concentrations of insecti-
cides in the fish tissues as being the best sample for
monitoring the contamination of pesticides in the lake.
In the future, should research efforts establish the
meaning of various water concentrations these, then,
could become the basis for the monitoring program.
The use of limiting concentratjons in
the tissues of the fish, as recommended by the Committee
was selected because these levels are practically
achievable. They are similar to existing concentrations
in some of the other Great Lakes and are safe because
no pesticide problems are evident in those lakes where
these recommended concentrations are not exceeded.
We recognize that "standards of accept-
ability" based on concentrations in animals, rather than
in water, may be somewhat new to those concerned with
pollution control. However, we believe that there is
-------
713
D. I. Mount
really little difference between basing standards on
tissue concentrations or on water concentrations.
Suggestions are provided in the body of
the report as to laboratories or agencies which might
perform various analyses. The Committee also felt that,
because the measurement of insecticides at the concen-
trations of concern is very difficult and especially
positive identification of pesticides by techniques such
as infrared spectroscopy, a section in the report should
be included concerning quality control. We are not
implying that quality control is not a necessary part
of any chemical measurement program, but it is of
extreme importance in this particular case because very
low limits of detection are required. We also underline
again the importance of positive identification of the
pesticides in at least some of the samples. Gas chroma-
tography is not a positive identification but rather
some more sophisticated, but well-established, procedure
such as infrared spectroscopy is required.
The research needs as outlined in the
report are also important if the monitoring program is
to be successful. There are many questions which must
-------
716
D. I. Mount
be answered before the data provided by the recommended
monitoring program can be properly interpreted and applied
to the practical situation. The research needs should
receive attention as well as the monitoring program.
The following five recommendations contair
the essence of the Committee's opinion regarding monitor-
ing and control of pesticides in Lake Michigan.
Recommendation No. 1. The concentration
of DDT in the fish should not exceed 1.0 yg/g; ODD shoulc
not exceed 0.5 .ug/gj d-ieldrin should not exceed O.ljig/g
and all other chlorinated hydrocarbon insecticides,
singly or combined, should not exceed O.ljag/g. Limits
apply to both muscle and whole body and are expressed on
the basis of wet weight of tissue.
Recommendation No. 2. Each State should
establish a regulatory authority to control and record
type, quantity and place of insecticide use.
Recommendation No. 3.. A Lake Michigan
Interstate Pesticides Committee should be created by
the Conferees to attain uniformity among the States in
pesticide use controls and establish uniform pesticide
concentration limits in fish, water and other aspects of
-------
717
D. I. Mount
the Lake Michigan ecosystem.
* ^e research needs
listed in this report should receive priority equal to
that given to the monitoring program.
R e c_oinmen_d_a ti_on No . _ 5_. The monitoring
program presented in this report, and modified as needed
should be implemented at the earliest possible date and
continue as long as the insecticide hazard exists.
Donald I. Mount, Chairman, Pesticides
Committee of the Lake Michigan Enf . Conference, 2/14/69-
REPORT ON INSECTICIDES IN LAKE MICHIGAN
Prepared by Pesticides Committee
of
The Lake Michigan Enforcement Conference
November
INTRODUCTION
' One of the sixteen conclusions reached by
i
j Conferees of The Four State Enforcement Conference on
! pollution of Lake Michigan (January-March 1968) is:
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__ 718
D. I. Mount
"Pesticides are found in Lake
Michigan and its tributary streams result-
ing from the application of these materials.
The ever-increasing use of these materials
threatens water uses for recreation, fish
and wildlife, and water supplies."
The Conferees took positive action toward
review and study of the pesticide problem in Lake Michi-
gan in their Recommendation No. 15:
"A technical committee on pesti-
cides will be established to be chaired by
a member of the Federal Water Pollution
Control Administration with representatives
from each State. The committee shall eval-
uate the pesticide problem and recommend
to the Conferees a program of monitoring
and control. The first report will be sub-
mitted in six months to the Conferees. The
States shall seek legislation to license
commercial applicators."
Accordingly, the Pesticide Committee mem-
bers were appointed, and held meetings in Chicago,
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719
D. I. Mount
Illinois, on May 17, June 11-12, and July 9-10, 1968,
and in Duluth, Minnesota, on September 19-20, 1968. The
Committee consists of:
Dr. Donald I. Mount, Federal
Water Pollution Control Administration,
Chairman;
Mr. Benn J. Leland, Illinois Sani-
tary Water Board;
Mr. Stephan Kin, Indiana Water and
Waste Laboratory;
Mr. John Favinger, Indiana Natural
Resources Department;
Mr. Carlos Fetterolf, Michigan
Water Resources Commission;
Mr. Lloyd Lueschow, Wisconsin
Department of Natural Resources;
Mr. John Carr, Bureau of Commercial
Fisheries;
Dr. Oliver B. Cope, Bureau of
Sport Fisheries and Wildlife.
The following report of the technical
committee on pesticides contains recommendations based
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720
D. I. Mount
on information obtained by the committee from published
material, testimony of experts, unpublished data from
studies not yet completed, and from the background and
experience of the committee members. Despite this wide
range of sources, the information was scanty on most
aspects of pesticides in the Lake Michigan watershed,
and totally lacking in several critical areas. These
factors had a pronounced effect on the nature and scope
of the committee's recommendations.
Despite considerably effort by the
committee, information necessary to determine the quan-
tity and kinds of pesticides in Lake Michigan was not
obtainable, and apparently such information would require
large expenditures of time and money. The committee
recognized a pressing need for a system to obtain such
information. The only significant information available
was the levels of DDT and dieldrin (both insecticides)
present in Lake Michigan fish.
This report includes only insecticides
since there is no information to suggest that any signif'
icant amount of pesticide, other than insecticides, has
been detected in Lake Michigan or its aquatic organisms.
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721
D. I. Mount
Thus, the word insecticide is used henceforth.
PROBLEMS RESULTING FROM INSECTICIDE
ACCUMULATIONS IN LAKE MICHIGAN
Several indications of insecticide hazards
in Lake Michigan have been reported, some of them based
on insecticide measurements in the basin and some based
on situations in other parts of the country and recog-
nized as probable eventualities in Lake Michigan. The
more important ones follow.
Pesti^cidej[ in Lake Michigan Wat_e_r
Water samples from Lake Michigan contain
insecticides. Samples collected in July 1968 at points
five miles west of Ludington, Michigan, and twenty-five
miles west of Saugatuck, Michigan, contained chlorinated
hydrocarbons. The collections were extracted, and aliquofts
of the extract were consigned to the Bureau of Commercial
i
Fisheries Laboratory at Ann Arbor, Michigan; Wisconsin
Department of Agriculture Laboratory at Madison, Wisconsifa
*
| and the Fish-Pesticide Research Laboratory, Columbia,
s
1 Missouri. The analytical results from these three
i
r
| laboratories were in close agreement, showing the
-------
, . , 722
D. I. Mount
Saugatuck sample to contain approximately .002 jag/1 of
DDT, less than .001 jjg/1 of ODD (TDE), a trace of DDE,
and approximately .OOl^ug/1 of dieldrin. The sample
from Ludington contained slightly greater quantities of
DDT and dieldrin and about the same quantities of ODD
and DDE. (Note that . OOl^ug/1, one part per trillion,
of DDT «* 167,000,000,000 molecules per liter.) These
samples should be representative of Lake Michigan's open
water areas, and the amounts of insecticides indicative
of widespread distribution throughout the greater portion
of the lake. Insecticides are also found in tributary
streams which are likely the principal source supplying
Lake Michigan.
Hazards t_o_JF j^s_h _ R_e_gjroduc_t j^on
The Michigan Conservation Department has
found DDT to be the most probable cause of death of
nearly one million coho salmon (0_nc_orhjrnjch_us__ki_s_utc_h_)
fry hatched from Lake Michigan brood stock. New York
studies have established that insecticide accumulations
in lake trout (S_a^v_e_l_i_n_us__namayc_ush_) brood stock result
in reproductive failure. In light of the New York
studies and the current residue of DDT and dieldrin in
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723
D. I. Mount
Lake Michigan fish, it is likely that natural reproduc-
tion of lake trout and coho salmon in Lake Michigan is
in jeopardy. Other fish species in Lake Michigan probabl
face similar reproductive hazards although there is evi-
dence only for these two species. Other important com-
mercial and sport fishery species known to have significa
insecticide residues include chubs (Leucichthys spp.),
alewives (PoinpJLob^s_ps_ej^p_2h_arengus_) , yellow perch,
(?££.°a._£.iLa-y_E.i£^I§.)' and smelt ( 0_s_me_rus__mp_rdax) . All are
important in the bionomics of the lake.
H a 2 a r d s to Bi^r d Rep r o du, c tj^on
Wisconsin workers have suggested an
insecticide-induced reproductive hazard to gulls in the
Green Bay area. This does not imply that the gull popu-
lation in the Great Lakes area is declining, but suggests
a possibility of failures in desirable bird populations.
Indeed, the diminishing population trends of raptorial
birds, such as eagles, osprey and peregrine falcons in
the Lake Michigan drainage basin have been attributed
to widespread use of DDT and other insecticides.
' Hazards to Human Health
i
The United States Food and Drug
nt
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724
D. I. Mount
Administration has established no tolerance level of
insecticides in fish utilized for human consumption.
The presence of residues in fish flesh has been estab-
lished by Wisconsin, Michigan, and Federal investigators
The Bureau of Commercial Fisheries has analyzed approxi-
mately 30 species of Great Lakes fish in the last three
years and has observed insecticides in all species col-
lected from Lake Michigan. The concentration of DDT in
chubs from Lake Michigan has averaged 7.b pg/g plus
analogs. Other species have lower but significant quan-
tities of DDT; dieldrin was found in all fish analyzed.
The concentration of residue in Lake Michigan fish is
usually two to five times higher than in other Great
Lakes fish and is substnatially higher in fish from
smaller Wisconsin lakes.
Although the presence of residues in
Lake Michigan fish has been established, the effects of
these residues on human health have not been evaluated.
The letter of June 4, 1968, (attached) from R. E. Dugganj
Food and Drug Administration, states that the FDA has j
"no petitions for tolerance in fish" and has no "plans
to establish tolerances on the initiative of the
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723
D. I. Mount
Commissioner." They further state, 'We are not in a
position to comment on the effects of pesticide contami-
nation of Lake Michigan on human health," and after
considering analytical and technological problems,
"...we concluded that legal action is warranted when
0.3 ppm aldrin_, dieldrin, endrin, heptachlor or heptachlojr
epoxide, is present in the edible portions of fish."
The Ann Arbor Laboratory (Bureau of Commercial Fisheries)
has found some fish with 0.3 ppm dieldrin total body con-
centrations .
Reproductive Failure of Mink F_ed_p_n Lake Michigan__F_ij^h_
The Reserach Advisory Committee of the
Mink Ranchers Association has suggested that mink fed on
Lake Michigan fish having a high DDT level have failed
to reproduce. The Association has initiated reserach
contracts to determine if there is a correlation between
pesticide levels in the mink food and the observed
reproductive failures.
Relation of
Evidence of numerous pollutants in Lake
Michigan is well documented. Wastes from municipalities,
industries, agriculture, and watercraft have contributed
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726
D. I. Mount
to eutrophication, bacterial contamination, excessive
algae populations, local oxygen depletions, heated water
and other nuisances. The effects of this complex pol-
lution may be magnified by insecticide pollution either
directly or indirectly. Insecticides may not be toxic in
the observed concentrations themselves, but as part of
a complex of stresses placed on organisms, they may be
much more damaging.
The Committee views the quantities of
insecticides in Lake Michigan as an immediate problem
affecting aquatic life but not human health. It is
essential that public officials, Industry, and the com-
munity recognize this problem and take the necessary
action to alleviate hazards caused by insecticide con-
tamination. The higher concentration of insecticides
in Lake Michigan fishes, as compared to fishes of the
other Great Lakes, suggests that with proper control,
lower concentrations can be achieved in Lake Michigan.
DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
FOOD AND DRUG ADMINISTRATION
WASHINGTON, D. C. 2020*1
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727
D. I. Mount
June 4, 1968
Dr. Donald I. Mount
Chairman, Pesticides Committee
Lake Michigan Enforcement Conference
Federal Water Pollution Control Administration
U. S. Department of Interior
6201 Congdon Boulevard
Duluth, Minnesota 55084
Dear Dr. Mount:
Your letter of May 23 requests informatior
on pesticide residue problems associated with Lake Michi-
gan. We are not in a position to comment on the effects
of pesticide contamination of Lake Michigan on human
health. There have been instances where the pesticide
residue content of fish caught by commercial fishermen
in Lake Michigan have been substantial and consideration
was given to appropriate legal action. Tolerances for
] pesticide residues as such, or as food additives, in
fish could be established under Section 408 or 409 of
the Food, Drug and Cosmetic Act. No petitions for
I tolerances in fish have been submitted, nor do we have
i
i plans to establish tolerances on the initiative of the
t
: Commissioner.
! After giving due consideration to analyti-
cal problems in sampling, sensitivity and reliability
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D. I. Mount
attainable in routine analyses, as well as current knowl
edge on the toxicology of specific residues, we conclude
that legal action is warranted when 0.3 ppm aldrin,
dieldrin, endrin, heptachlor or heptachlor epoxide, is
present in the edible portion of fish. This guideline
will be reevaluated and changed as additional informa-
tion becomes available and is not to be construed as a
tolerance.
The above figures are applicable only
where there is no history of purposeful use of the
pesticide which would result in residues in fish.
Furthermore, we would not consider these levels accept-
able if a significant proportion of fish marketed con-
tained this concentration of residue.
In addition to the problem of residues
in fish for human consumption, attention should be given
to the use of fishery products in animal feeds which
might result in residues in meat, milk and eggs.
We are referring your letter and a copy
of our reply to the Federal Committee on Pest Control
for their information. You may wish to seek suggestions
from that Committee, if you have not already done so.
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729
D. I. Mount
If we can be of further assistance or
provide additional information on specific questions,
we will be glad to do so.
Sincerely yours,
/s/ R. E. Duggan
R. E. Duggan
Deputy Associate Commissioner
for Compliance.
INSECTICIDE USE
The kinds and quantities of insecticides
used in the past, those being used now, and those pre-
dicted for the future bear directly on the presence and
distribution of insecticides in Lake Michigan and on
steps to be recommended to decrease the amounts in the
lake and its biota. The Committee has exerted effort to
compile information on types, amounts, and distribution
of insecticides applied in the Lake Michigan drainage
basin, and has learned that there are no accurate, con-
sistent compilations of such information. Fragmentary
( figures are available for some areas and for some insect
icides, but extrapolation of these numbers into realisti
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D. I. Mount
totals for the drainage basin appears impossible at the
present time. Even the following general statements on
usage are subject to great error; the values are only
general indications and should be used cautiously.
Approximately 1.25 million acres of
Indiana land drains into Lake Michigan. Much of this
area is heavily industrialized and urbanized and the
remainder is devoted to dairy and general farming.
About 58,000 acres of Illinois is in the Lake Michigan
watershed; most of this area is highly-developed indus-
trial and residential area. The Lake Michigan drainage
area in Wisconsin measures about 250 miles long, and up
to about 150 miles wide; this area has extensive orchard
and other farm acreage, as well as forests. Michigan
lands in the drainage basin are extensive, and include
approximately one-half of the entire State (approximatel;
29,100 square miles). In this area are vast forests,
numerous Christmas tree farms, and widespread agricul-
tural lands, including the greater part of the Michigan
fruit belt.
In 1964 approximately 3-8 million pounds
of insecticides were used on crops in the three lake
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. 731
D. I. Mount
States of Minnesota, Michigan, and Wisconsin (U.S.D.A.,
1968). It is not known what portion of this was applied
in the Lake Michigan watershed. In the lake States the
greatest amounts of the insecticides were used on apples
and other deciduous fruits. Aldrin (that converts to
dieldrin) used on the largest acreage on corn, totaled
761,000 pounds on approximately 1.2 million acres. DDT
was applied to about 150,000 acres and accounted for
511,000 pounds.
The State of Wisconsin estimates that in
its segment of the Lake Michigan drainage basin approxi-
mately 150,000 acres of farm lands received 500,000
pounds of technical insecticides in 1967. Of this,
86,600 pounds was DDT, 4,200 pounds was dieldrin, 103,80C
pounds was chlordane, and 28,000 pounds was toxaphene.
Most of the remainder was composed of non-persistent
insecticides.
Based on 1966 insecticide application
data and 1964 crop average data, the agricultural use
of persistent chlorinated hydrocarbons, in the Michigan
portion of the drainage basin is considerably less than
the fungicides, phosphates and herbicides. Of the
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D. I. Mount
persistent materials, aldrin, DDT, and dieldrin were
the most frequently applied and were used primarily on
grain crops and fruits. Dieldrin and DDT were applied
in much greater amounts before 1966.
The Lake Michigan drainage basin is not
typical of the rest of the United States in respect to
the distribution of insecticide use. In the corn belt
and cotton belt States there is a much higher percentage
of insecticide use on field crops, while the basin use
is perhaps 60 percent metropolitan and 40 percent agri-
cultural. Throughout the greater part of the Lake
Michigan drainage basin municipalities have made heavy
use of DDT for control of the lesser European elm bark
beetle, the principal vector of Dutch elm disease. The
amount of DDT applied to a large elm tree approximates
that normally applied per acre for field crop purposes.
DDT spraying is largely municipally-sponsored and trees
in parks and along streets are sprayed mainly in the
spring. Considerable insecticide drops to paved areas
and is washed away by stormwater directly into tribu-
taries of Lake Michigan. Mosquito abatement programs
are also common in the resort and residential areas in
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D. I. Mount
much of the basin. Persistent insecticides applied
for the above purposes have less opportunity to become
bonded to soil particles than do those applied directly
to crop areas for insect control.
The Lake Michigan drainage area must have
received immense amounts of pesticides in recent years.
Prospective future use, based on present trends, suggest
increased emphasis on the less persistent insecticides
and decreasing reliance on the persistent chlorinated
hydrocarbons.
MONITORING PROGRAMS
It is axiomatic that a program of insecti
cide measurements in the Lake Michigan environment would
have helped us recognize the existence of an insecticide
problem, but a monitoring program will be indispensable
in following future changes, whether or not a control
I program is implemented.
|
| Some measurements of insecticides in this
!
ecosystem have been made in recent years. Certain of
these programs could be classed as monitoring activities
but data have also been accumulated from individual
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D. I. Mount
studies restricted as to times and places. All of these
have added to our knowledge and helped form our impres-
sions of the history of insecticides in the water and
the animals of Lake Michigan.
During the past three years the Ann Arbor
Biological Laboratory of the Bureau of Commercial
Fisheries has been measuring insecticide levels in fish
from each of the Great Lakes. Some results from these
studies are included in Table 1. The same laboratory
has collected many water samples from Lake Michigan and
has found DDT and dieldrin in measurable amounts.
In the past few years, the Ontario Water
Resources Commission has analyzed fish from Lakes Erie
and Ontario and other waters.
The U. S. Department of Agriculture con-
ducts the soil monitoring portion of the National Pesti-
cide Monitoring Program, including the Lake Michigan
watershed. Sampling began on July 1, 196*8, and no resul
are yet available.
The Wisconsin Department of Natural
Resources is studying the sources, seasonal variation,
and residues in fish of chlorinated hydrocarbon
:s
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17
Table 1
Pesticide Kesidues in Whole Fish from
Lake Michigan, 1965-1968*
Pesticide concentration (pr>m)
Species
Alewife
Chubs
Smelt
Perch
Lake trout
3-5"
6-9"
10-13"
16-20"
Coho salmon
10-22"
25-30"
Number
of fish
663
38U
239
200
10
61
fco
19
15
k
Dieldrin
0.11
0.2U
0.08
0.06
0.02
0.11
0.13
0.21
O.lU
0.15
Total DDT
(DDT, DDD, DDE)
3.93
10.11
3.01
3.28
1.07
2.99
I».31
6.6k
3.U5
12.59
* Bureau of Commercial Fisheries data
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D. I. Mount
insecticides, in the Milwaukee River and its tributaries.
The department is also investigating insecticide resi-
dues in invertebrate organisms in streams tributary to
Lake Michigan.
At the Michigan State University, studies
are in progress on the effects of insecticides on popu-
lations of salmonids in Lake Michigan, on the nature and
metabolic activity of lipids associated with insecticides
residues in fish eggs, and on environmental and physio-
logical factors affecting the toxicity of accumulated
insecticide residues.
The literature contains recent reports
on insecticides in the Lake Michigan drainage, including
the Green Bay area. Reports have also been published
on herring gull reproduction, occurrence of insecticides
in the Lake Michigan ecosystem, and DDT and dieldrin
levels in Great Lakes fish. No known programs exist that
will indicate the contribution of airborne insecticides
to the lake.
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D. I. Mount
RECOMMENDED MONITORING PROGRAM
A monitoring program would provide up-to-
date information on the pesticide contamination within
the aquatic ecosystem of Lake Michigan and its drainage
basin. Such information would be used in the management
and protection of the water resources and specifically
for the protection of sport and commercial fish.
To stay within practical limits of time,
money and manpower, the Committee recommends a four-poinjt
approach to the monitoring program: changes in insecti-
cide levels should be measured in 1) major tributaries;
2) minor tributaries; 3) Lake Michigan water; and 4)
fish of Lake Michigan.
Monitoring
To be of greatest value, the monitoring
program must include those insecticides of currently
acknowledged significance to human health and to growth
and reproduction of aquatic life. It must measure
quantities at reproducible levels to establish current
concentrations and to trace future trends. The Committee
has selected seven contaminants (Table 2) and their
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738
21
Table 2
Insecticides and the Lower Values of Quantitative Reporting
Recommended for Various Types of Monitoring.
Insecticide and
priority order
of analysis
DDT
Dieldrin
DDD
DDE
Methoxychlor*
Chlordane*
Endrin
Tributary water
Pg/1
.020
.020
.020
.020
Lake water
Pg/1
.001
.001
.001
.001
Fish tissue
VK/P,
0.1
0.1
0.1
0.1
0.1
0.1
0.01
Clam tissue
Mg/K
0.1
0.1
0.1
0.1
0.1
0.1
0.1
* If detected in fish tissue at concentrations greater than
0.1 pg/g, quantitative reporting should be changed to a 0.01 yg/g limit.
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D. I. Mount
levels of detection for routine analysis by gas chroma-
tograph, to provide the information necessary to meet
the objectives .
Ma jor Tributarl_e_s_Re_co_mme_nde d _ for Sampling
The Committee recommends nine major
tributaries of Lake Michigan to be sampled continuously
for three days (Table 3)> once each month. The purpose
is to determine the poundage of insecticides supplied
by the major tributaries to Lake Michigan. Sampling
stations should be located as close to the lake as prac-
tical. Two stations are recommended on the Milwaukee
River, one near the mouth and one above the industrial
area, to differentiate between agricultural and urban
contamination. Water samples for pesticides are to be
analyzed without filtration; subsamples are to be analyz
for suspended solids and turbidity.
The three-day continuous sampling method
is recommended to detect fluctuations in turbidity and
pesticide loads. Although the sample volume will not be
proportional to stream flow, it can be related to dis-
charge rate to secure quantitative information.
The apparatus for continuous flow sampling
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23
Table 3
Recommended Water Quality Monitoring Stations
for Insecticides on Major Tributaries.
River
Fox*
Grand**
Calumet
Grand
Kalamazoo
Manistee
Menominee
Proposed
station
location
Main St. Bridge,
Green Bay , Wis .
Dickey Road,
East Chicago, Ind.
Corps of Engineers ,
Grand Haven, Mich.
U. S. 31 Bridge,
Saugatuck, Mich.
Maple St. Bridge,
Manistee, Mich.
Ogden St. Bridge,
annual
flow
(cfs)
M*
86U
Moo
1,722
2,312
3,382
annual
high flow
(cfs)
12,983
23,820
5,812
5,937
15,150
annual
low flow
(cfs)
1,207
92*4
512
1,322
99^
Watershed
(sq.mi. )
6,150
37
5,570
2,060
2,130
M70
of
basin
gaged
—
—
88
78
93
93
Marinette, Wis.
Menominee, Mich.
Milwaukee Machinery Bay,
*** Milwaukee
Milwaukee Above urban area
Muskegon Coast Guard,
Muskegon, Mich.
385
Currently unavailable
2,176 7,750
28
St. Joseph Ches. & Ohio RR Bridge 2,312 5,937
St. Joseph, Mich.
1,322
686
2,660
2,130
* Data from Wrightstown, Wis.
** Data from Gary, Ind. stage-flow relationship plus industrial and
municipal discharges.
*** Data from six miles above mouth.
93
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D. I. Mount
can be a pump with a. capacity to deliver about 200cc of
stream water per hour into a five-gallon covered bottle.
Larger pumps can be used if a bleeder is provided to
deliver the indicated amount. (Suitable pumps are
commercially available for approximately $50 each.) The
water should be drawn through metal tubing from a sectior
of stream with a visible current.
Studies at Michigan State University have
demonstrated that the majority of phosphorus is carried
by a stream during relatively few days of each year.
Insecticides are likely to behave similarly and, because
data on the total tributary contribution are desired,
grab samples are not adequate.
Biological Sampling of Tributaries
The Committee recommends a one-year pro-
gram of biological monitoring in most tributaries during
the ice-free season (Table 4). The main purpose of the
monitoring is to identify sources of insecticides from
tributaries other than the nine named in the ma.jor
tributary water sampling program. Living clams will
be used to sample water.
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Tributary
Michigan
Galien River
Drain
St. Joseph River*
Paw Paw River
Black River
Kalamazoo River*
Black River
Pigeon River
Grand River*
Muskegon River*
White River
D. I. Mount
TABLE 4
Tributary Streams Recommended
for Biological Monitoring
Location
La Port Road, New Buffalo,
Michigan
Sawyer, Michigan
U.S. 31 Bridge, St. Joseph,
Michigan
Above St. Joseph, Michigan
U.S. 31 Bridge, South Haven,
Michigan
U.S. 31 Bridge, Saugatuck,
Michigan
Ottawa Beach, Michigan
Lake Shore Ave., Port Sheldor
Michigan
Corps of Engineers, Grand
Haven, Michigan
Coast Guard, Muskegon, Michig
S. Channel wall, Whitehall,
Michigan
* Water monitoring station for pesticide analysis
an
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D. I. Mount
Tributary
Michigan (cont'd.)
Pentwater River
Pere Marquette River
Manistee River*
Betsie River
Platte River
Crystal River
Leelanau Lake outlet
Boardman River
Elk River
Lake Charlevoix outlet
Bear River
Millecoquins Creek
Manistique River
Sturgeon River
Whitefish River
Escanaba River
Ford River
Location
Coast Guard, Pentwater, Michigan
Channel area, Ludington,Michigan
Maple St. Bridge, Manistee,
Michigan
Coast Guard, Frankfort, Michigan
M-22, Benzie State Park,Michigan
Bay Lane, Glen Arbor, Michigan
Leland, Michigan
Traverse City, Michigan
Elk Rapids, Michigan
Charlevoix, Michigan
Petoskey, Michigan
Naubinway, Michigan
Manistique, Michigan
Nahma, Michigan
U.S. Bridge, Rapid River,
Michigan
Wells, Michigan
M-35 Bridge, Ford River,
Michigan
Water monitoring station for pesticide analysis.
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D. I. Mound
744
Tributary
Menominee River*
Indiana
Grand Calumet River*
Burns Ditch
Trail Creek
W_i_s_c£_n_s_in_
Peshtigo River
Oconto River
Pensaukee River
Little Suamico River
East River
Suamico River
Mink River
Unnamed Streams (7)
Ahnapee River
Keviaunee River
East Twin River
Location
Breakwater, Menominee,
Michigan
East Chicago, Indiana
Midwest Steel Catwalk,
Burns Harbor, Indiana
Franklin St. Bridge,
Michigan City, Indiana
Marinette County
Oconto County
Oconto County
Oconto County
Brown County
Brown County
Door County
Door County
Kewaunee County
Kewaunee County
Manitowoc County
* Water monitoring station for pesticide analysis
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D. I. Mount
745
Tributary
Wisconsin (coiitld.)
West Twin River
Manitowoc River
Silver Creek
Calvin Creek
Pine Creek
Point Creek
Fisher Creek
Centerville Creek
Seven Mile Creek
Pigeon River
Sheboygan River
Black Creek
Sauk Creek
Menomonie River
Kinnickinnic River
Oak Creek
Root Creek
Pike River
Barnes Creek
Location
Manitowoc County
Manitowoc County
Manitowoc County
Manitowoc County
Manitowoc County
Manitowoc County
Manitowoc County
Manitowoc County
Sheboygan County
Sheboygan County
Sheboygan County
Sheboygan County
Ozaukee County
Milwaukee County
Milwaukee County
Milwaukee County
Racine County
Kenosha County
Kenosha County
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D. I. Mound
Clams siphon and filter large volumes of
water and concentrate insecticides to levels many times
greater than that of the water. Insecticide levels
found in clams reflect concentrations which existed in
the water two to three weeks before the sampling time.
Only high insecticide concentrations are
of interest on the smaller streams; lower concentrations
would not contribute significantly to the total concen-
tration in the lake.
This program should begin in early spring
before the insecticide spraying season, and extend into
the fall. Clams should be placed in wire baskets sus-
pended a short distance above the stream bottom. The
concentration of insecticide in the clams will reach
equilibrium in two to three weeks. If exposure ceases,
accumulations are lost in approximately the same period.
Sufficient numbers of clams should be used so that sub-
samples of three each can be removed every four to six
i weeks and at times such as following heavy runoff during
j
| peak insecticide application periods.
The single composite sample of three
clams may be placed in formalin or frozen before analysis.
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D. I. Mount
Lamp sill s s 111 qu o i dea, t a widely distributed clam found
in moving and still water, is the most desirable species
Fusconaia is also suitable, but because concentration
rates may vary among species, the same species should be
used for all sampling.
The presence of the crystalline style in
the esophagus of the clam indicates feeding activity
and that the animal has been filtering normally, accumu-
lating extant insecticides. The examination for this
structure is rapid and simple and will provide useful
information.
Lake Water Sampling
The Committee recommends two sampling
areas be established in the central portion of the lake,
one in the northern basin and one in the southern basin.
Three samples of surface water should be collected three
times each year at each station. Horizontal and verti-
cal distribution of insecticide concentrations are not
justified for inclusion in this monitoring program since
meaningful values would require large numbers of samples
and the data would be difficult to interpret.
It is recommended that the water intake
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D. I. Mount
of the Chicago Central District Filtration Plant be
sampled weekly for insecticide analysis. Information
furnished by HWPCA's Great Lakes-Illinois River Basin
Project indicates that this intake water is representa-
tive of open lake water on most days of the year.
Unusual weather conditions and wastes and storm runoff
entering the lake may alter the quality of this intake
water but such effects will be apparent in the routine
water quality analyses. The principal purpose of this
sampling point is to provide a source of reproducible
samples to furnish data on long-term trends. Such
information is necessary to evaluate the effectiveness
of the insecticide control program.
Fish Sampling
Fish accumulate insecticides to concen-
trations many times the levels of their surroundings.
Analyses of tissue from Lake Michigan fish by Federal
and State agencies indicate insecticide levels approach-
ing limits currently suggested by the U.S. Food and
Drug Administration. The levels are three to five times
higher than those in the same species of fish from the
other Great Lakes.
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D. I. Mount
The Committee recommends that four specie
of fish be collected in April and October at four sampli
stations on Lake Michigan. Two samples of ten fish
(five of each sex) are to be examined in accordance
with the schedule in Table 5«
TABLE 5
Recommended Insecticide Analysis for Fish
to be Collected in April and October
Number Composition
Station* Species of Samples of Samples
Green Bay Alewives
Yellow perch
Waukegan,
Saugatuck,
and
Charlevoix Alewives
Yellow perch
Chubs
2
2
2
2
5 males, whole bod/
5 females, whole b ?dy
5 males, muscle onjly
5 females, muscle
2
2
2
2
2
5 males, whole bod
5 females, whole b
5 males, muscle on
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D. I. Mount
Number Composition
Station* Species of Samples of Samples
2 5 males, whole body
2 5 females, muscle
mly
2 5 females, whole b :>dy
Coho Salmon 2 5 males, muscle on
2 5 females, muscle
* Station choice based on location of commercial
fisherman and not requiring special collecting.
- c -•*• de Analvs es
The Committee has been advised that the
city of Chicago will undertake routine insecticide
analyses on Lake Michigan water withdrawn at their
intake. We therefore recommend that the city be request
ed to perform analyses for insecticides on open water
and intake water samples in accordance with the schedule
described above.
The U. S. Department of the Interior,
Bureau of Commercial Fisheries Biological Laboratory
in Ann Arbor, Michigan, is already measuring insecticide
levels in Great Lakes fish, especially those from Lake
Michigan. The Committee recommends that this laboratory
y
nly
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731
D. I. Mount
assume responsibility for collecting and analytical
work on the Lake Michigan fish monitoring program.
The Committee recommends that Indiana tributary water
and clam samples be analyzed by the cooperating labora-
tory nearest to the sampling site.
Since several laboratories are likely
to be involved, a rigid system of quality control is
mandatory for comparable data.
Quality Control
Positive identification of all chlorinate)}
hydrocarbons detected, as well as reproducibility and
accuracy of the procedure, is of greatest importance.
Therefore, the following recommendations are made to
assure a reliable quality control program for water,
clam and fish samples analyzed during the survey: water
samples will be analyzed by the Pr_o^isi_orm3LJFWPCA_
Interim Of f_i_c i_al_Me_t:h_o_d _f_o_r _C_h_l_o_r i_n_a t_e_d _Hy_d_ r o c_a r_b_o_n
Pesticides in Water and Wastewater ^r_Gas_Ch_romato_graphy
! May 1968. Additionally, a blank with the applicable
volume of distilled water, as stated in the procedure
and an actual sample to check percentage recovery of
an added mixture of pesticides found in the samples
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D. I. Mount
must be determined. One blank and one fortified sample
should be interspersed with each nine field samples.
To assist the analyst in identification
of suspected pesticides, two separate gas chromatography
columns, with different retention times, should be
employed to check relative retention time of pesticides
in the samples. Further, infrared spectrometry should
be employed on five percent of the water samples to con-
firm the routine analyses. If individual samples do
not have sufficient concentration to make infrared
measurements, the residues from several samples should
be composited, or carbon filters should be used, to
secure sufficient quantities of insecticide for positive
identification.
Fish and clams will be analyzed by the
procedure as outlined in the U.S. Food and Drug Adminis-
!
tration' Pesticide Analytical Manual, Volumes I and II,
i Revised January 1968. A reagent and procedure blank,
|
j using the method and number as outlined above for water,
i
I must be employed. Similarly, the pesticides used in
|
i the recovery must be a mixture of those expected to be
found in the test organisms and at concentrations
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753
D. I. Mount
comparable to the actual samples. Tissue samples of
fish from each sampling location must be verified by
positive identification of pesticides at least once
each year at each location.
Data will be reported in ug/1 for water
samples andjig/g (wet weight) for the fish and clams.
Research Needs
Although there is ample evidence that
insecticides are a hazard in Lake Michigan, the means
of determining the exact detrimental effects, the levels
and kinds of insecticides, their distribution in the
Lake Michigan environment, and the way in which they
enter the lake are not sufficiently known. The Committee
strongly recommends that research be immediately
initiated to provide the knowledge needed to control
pesticides realistically at levels not detrimental to
the water uses of Lake Michigan. The specific research
needs listed below will provide knowledge needed imme-
diately on the Lake Michigan watershed to control the
i
use of insecticides effectively and to determine what
remedial actions are necessary. The Committee realizes
that no one agency is capable of conducting all of the
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D. I. Mount
needed research and is not, therefore, attempting to
recommend who shall do the work.
The significance of research on the
following specific problems is vital to evaluation of
the effect of insecticides in the Lake Michigan water-
shed:
1 • The effect of insecticide residues
and r
Although considerable evidence has been advanced to
show that insecticide levels in coho salmon, for example
have affected their reproduction, we do not know the
levels that would have no effect in this species. There
is increasing evidence that a residue value that is
detrimental in one body of water may not be harmful in
another aquatic habitat. The research, therefore, must
be done on Lake Michigan.
2. The m
--.----- At tne Present tlme
nothing is known about transport of insecticides into
Lake Michigan. Results of the monitoring program will
partially answer this question, but detailed studies
are needed to determine the percentage of insecticides
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D. I. Mount
entering from streams (both dissolved in the water and •
sorbed on suspended material) and directly to the lake
from the atmosphere (rain or wind-carried spray).
3 • Tlie e f f e c t of I> ound iris^ec t i c i d e s
(jiot in solution) on f ish. Apparently significant
amounts of insecticides reach the lake sorbed to solid
particles. Whether they have an effect on fish or are
simply lost to the bottom sediments must be known.
4. History of insecticide uses, includin
amounts and kinds in the Lake Michigan watershed. An
effective control program must be based on a knowledge
i
of past history and current status of uses. j
i
5 • The persistence of insectic^ide^s^ in
the Lake Michigan ecosystem. Knowledge must be gained !
i
j
concerning the time required for the breakdown of toxic j
j
insecticides into relatively nontoxic or biologically j
I
inactive compounds. This knowledge is necessary to pre-j
diet the effectiveness of any control program. i
6. Th e effects o n ^t_e_r r e s_t_r i a 1 o rg a n i sm s_ I
of insecticides occurring in the aquatic ecosystem. j
This knowledge is needed to establish residue levels in
fish and other aquatic organisms to ensure that there
-------
__________ 756
u. 1 . Mount
wall be no adverse ei'i'ect on terrestrial organisms such
as fish-eating birds or mammals. This level may be
more critical (i.e., lower) than that needed to protect
the food organisms itself.
7 . Corr.b ine d ctscamj^^u_r_e: _ o_f_
insecticide compounds on organisms. Since many insecticide
compounds occur in Lake Michigan, it is necessary to
determine the effects of combinations of known insecti-
cide residues on organisms, in addition to the effects
of single compounds.
^ • Determination of the proper methods
o f col lee t_icm , __ storage and analysis of s ample s_ . Th i s
study is essential to the monitoring program recommended
by the Committee, and can be a part of that program.
The Committee recommends that immediate
attention be given to these eight needs, but with full
j realization that new research needs will undoubtedly
I
i
I arise as these studies progress.
i
I CONTROL RECOMMENDATIONS
J
! The Lake Michigan Technical Committee on
i
Pesticides recognizes the many and varied uses of
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D. I. Mount
pesticides. The Committee feels that each pesticide
developed has potentially legitimate uses which warrant
the developmental effort; therefore, control over usage
should be established with regard to the unique needs
for the product, its potential side effects, accumula-
tion potential in the environment, and the hazard of
accumulations. The Committee feels that positive action
should be taken not only to prevent the accumulation of
persistent pesticides, but to reduce their concentration
in Lake Michigan waters:
Recommendation No. !_.
The concentration of DDT in the
fish should not exceed 1.0 ug/gj DDD should
not exceed 0.5 ug/gj dieldrin should not
exceed 0.1 wg/g and all other chlorinated
hydrocarbon insecticides, single or combined,
should not exceed 0.1 yg/g. Limits apply
to both muscle and whole body and are ex-
pressed on the basis of wet weight of tissue.
The above values for DDT and DDD are based
on evidence that Lake Michigan fish apparently exceed
these levels, while fish of the other Great Lakes and
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D. I. Mount
inland waters do not. Furthermore, it appears that in
coho salmon, and perhaps other fish, reproductive capa-
bilities are inhibited by levels that exceed these
values. The 0.1 ug/g recommendation for dieldrin is
based on reducing the present level of dieldrin in
Lake Michigan fish.
The Committee recognizes that other
chlorinated hydrocarbons apparently are not a hazard
to Lake Michigan fish at this time, but a reduction in
the use of DDT and DDD will result in a shift to other
insecticides. It is further recognized that other
insecticides may be even less tolerable than DDT and
DDD and therefore contamination levels must be estab-
lished now before such problems develop. The Committee
recognizes that, to achieve the recommended reduction
of DDT plus analogs and dieldrin in fish, it will be
»
necessary to reduce the concentrations of each product
in Lake Michigan waters possibly to less than .001 ug/1.
Limits of contamination are given for fish rather than
water because the permissible concentration in the water
is not known.
-------
D. I. Mount
Recommendation No. 2_.
Each State should establish a
regulatory authority to control and
record type, quantity and place of
insecticide use.
This regulatory authority should have the
power to evaluate the benefits of particular products
and their uses against the potential damages that might
be inherent in their use. This regulatory body should
be composed of at least one representative each from
the disciplines of agriculture, conservation, water
pollution, health and administration. The regulatory
body would review each known insecticide use in light
of its benefits and hazards and subsequently approve or
disapprove its use. It would initiate among the repre-
sentative agencies the necessary monitoring information
required to evaluate insecticide sources within the
State .jurisdiction.
The regulatory authority should also be
provided with technical talent capable of reviewing and
evaluating the literature that is continuously becoming
available. Enforcement of this authority's rules
should be clearly identified in the legislation
creating the group. Enforcement of policies should
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D. I. Mount
be intensive and aggressive to adequately protect the
environment from insecticides deemed damaging or unwar-
ranted.
R e c o m m en d a t ion No. 3,•
A Lake Michigan Interstate
Pesticides Committee should be created
by the Conferees to attain uniformity
among the States in pesticide use con-
trols and establish uniform pesticide
concentration limits in fish, water
and other aspects of the Lake Michigan
ecosystem.
The Committee would review, at least
annually, the monitoring results, evaluate the effective
ness of the program, and advise the Conferees on needed
changes in the monitoring program. This committee,
after evaluating the potential ecological hazards to
Lake Michigan, reviewing the inventory of products used,
and evaluating uses that contribute significant quan-
tities of insecticides to Lake Michigan, would recommend
further action to substantially reduce the insecticide
hazard to Lake Michigan.
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D. I. Mount
The research needs listed in
this report should receive priority equal
to that given to the monitoring program.
R e c omme n da t i_ori_ N o . __ 5. •
The monitoring program pre-
sented in this report, and modified as
needed, should be implemented at the
earliest possible date and continue as
long as the insecticide hazard exists.
Because the insecticides dealt with in
this report are persistent, improvement in lake con-
ditions will not appear as soon as sources of contami
nation are controlled. Only through a continuing
monitoring program can the results of the control
measures be evaluated.
Prepared by:
Lake Michigan Enforcement Conference
Pesticides Committee, Donald I. Mount, Ph,D.,
Chairman, November 15, 1968.
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D. I. Mount
MR. STEIN: Thank you, Dr. Mount.
Are there any comments or questions?
Dr. Mount, I think this is an excellent
report.
By the way, before we go on, I would like
to say that Mr. Richard Nelle is here for Mr. Klassen,
who had to leave.
I think we can move on this, but I run
into some real problems with it.
If we adopt the figures that you point
out for DDT, dieldrin and other chlorinated hydrocarbon
insecticides--by the way, why do you use the word
"insecticide?" Why not "pesticide?""
DR. MOUNT: Because we found no evidence
that fungicides,herbicides, and so on,were a problem in
the lake, and it is virtually impossible, without a mass
analytical program, to detect these others. It is not a
matter of running something through once and getting thi
MR. STEIN: Yes. Well, if you have all
other hydrocarbons.
But the point is, supposing we find some-
thing exceeding those limits in the tissues of the fish,
Ive
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D. I. Mount
and I know we have been through this that you do the
test, what do we do with that information? How do we
relate that to a point of discharge to limit it? Now,
if we don't know what is going in or where or whether
these limits—or the limits will be effective in cutting
it down--in other words, what happens if we find that
dieldrin or DDT exceeds this limit? Do we ban it
altogether or do we cut down its use or put limitations
on its application? Where do we go from this? How does
this give us a pollution control?
DR. MOUNT: I don't think that the ques-
tion you are raising is any different than it would have
been had we recommended limits on the water in the open
lake. The monitoring program, we feel, is set up so as
to identify the tributaries which are making the ma/jor
contributions or at least giving an estimate of how much
each one is putting in.
MR. STEIN: I didn't say it was any
different than the water in the lake. But the question-
you raised this point on the front page of your report
saying that you can't get evidence on the type of
insecticides and where they were being used.
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D. I. Mount
Now, the point is, if we don't have that
information,' if you have this Information you give herej
or any other indication of a measurement in the lake--
unless we can relate that to some kind of application
on land, we are not going to be able to put any meaning-
ful control measures into effect, are we?
DR. MOUNT: I am not sure I still com-
pletely understand your question.
But let me repeat again, the tributary
sampling program should identify those areas where the
contributions are coming from, the measurements.
Secondly--
MR. STEIN: Supposing you do that--
DR. MOUNT: Secondly, I would like to
underline that less than half of the insecticides are
used on agricultural land.
MR. STEIN: That is right.
DR. MOUNT: Which means that industrial
sources and municipal sources are also suspect.
MR. STEIN: I didn't mention agricultural
lands, purposely. This is precisely the point.
Supposing, Don, we do identify a tributark
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D. I. Mount
What do we do? What I am trying to do is to get some
kind of methodology where once you have identified these
tributaries we can hopefully come up with a program or
at least a recommendation for control. Just identifying
a tributary that something comes out of or identifying
the material in the fish or in the water is not going
to permit us to control the operation.
The question is, unless you know the
source, and there can be three sources, three possible
ones—and by the way, I don't want to incriminate any
one of these, I am Just doing these kind of to exhaust
the field — either agricultural application, industrial
sources or municipal sources, that something is going
to come through, and the lady flushing this down her
toilet bowl in the aggregate may be just as important
as the land runoff.
But until we know this, until we are
able to control the source, how are we going to stop thi
Do we have a control program, if we are going to recom-
mend one, which will lead to a controlled result? This
is what I am getting at, Don.
DR. MOUNT: Perhaps,we felt that the next
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D. I. Mount
step was obvious and maybe it isn't. But it seems to
me that once you know the tributaries that are most
concerned the next logical step is to look at the out-
falls and the drainage from agricultural areas to see
what the sources on that tributary are.
We have set up a sampling program on one
of the rivers, which I can't--it is one in Wisconsin,
and I believe it is on—well, I believe it is on the--
I won't say. It is one of the rivers in Wisconsin. We
have two sampling points on that river specifically for
that purpose, to get some feel for the relative contri-
bution from agricultural runoff as compared to industrial
or urban area runoff. But I believe you simply go up
the stream and locate the sources once you know which
tributary it is going in.
MR. STEIN: Don, this is what I am getting
at.
By the way, Dr. Mount has done some of
the pioneering work here. The point is what he did do,
I think, was crack the case where we found fish dying
by the millions in the lower Mississippi and dis-
covering -tfce CJFVB«* of what was killing them. The
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D. I. Mount
difficult job that we had was finding where the material
came from. We believe-:-and again I want to say that the
people responsible may not agree with this-;-but we
believe we located this, which was a chemical plant
manufacturing this, putting it out. We were extremely
lucky in finding what we thought was one source and
when that stopped the fish haven't died since. So we
solved the case. The difficulty, though, is if we are
not dealing with one source-r-and in this case obviously
you are not going to find this-r-we are not going to be
that lucky.
What I am wondering is, again, Don, the
most difficult thing we have to do is to trace this.
Now, do you have a technique or an approach not only to
find that this material is coming out in deleterious
quantities which should be cut down, but really to pin-
point the sources that it is coming from? Do you have
a proposal for that? This is what I am getting at.
DR. MOUNT: No, not specifically.
MR. STEIN: Again, I don't want to delude
anyone on this insecticide control problem here. This is
a very, very difficult operation. Until we develop this
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D. I. Mount
we are not—and I don't say it is luck where you have
one major industrial source that you can find and stop,
but we can't expect that kind of control situation here.
We have to expect if we find that they are coming from
municipalities, cities and industries that we have to
come up with a split and pinpoint them or else have a
product ban, which is a very drastic way of handling
things. And I would suggest that this may be a way of
looking at this again.
Now let me ask you .just one technical
question. You talked in terms of gas chromatography
and infrared spectroscopy. Let's suppose that we knew
what chemicals were being applied in the particular area
and you got pure samples of those chemicals. If we
checked the products that were being used by municipali-
ties, industries and cities, and you had these pure
samples, by using the infrared technique,couldn't you
pretty well identify the material we had in the water?
DR. MOUNT: Yes. That is why we have
proposed the use of spectroscopy.
MR. STEIN: Again let me give you this.
This is one of the new fields that we are getting at.
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D. I. Mount
Presumably, Dr. Mount, using the most sophisticated
machines,we can use the infrared spectroscopy and come out
with a wiggle line on a sheet of paper which has charac-
teristic ups and downs, hills and valleys. The diffi-
culty is, with all the tens of thousands of millions
of substances,you don't know what that is. But if we
can get a pure sample of the substance and then pick up
a little of this in the water or in the tissue of an
animal and run it through and you match the wiggles,
it is like a fingerprint and they match; then you have
it laid down.
It seems to me an effective control eithei
to test what is coming out or to find this-r-and we will
need the State agriculture departments and everyone to
work on this if this is going to workr-we are going to
need a pretty much complete inventory of what is going
into the stream, who is using it and where it is applied
before we can have too much success in finding that when
we get it in the stream. And I think if you are really
serious about controls of this problem, the other aspect
that you point out is going to be .just as important. I
am talking from the regulatory point of view, not the
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D. I. Mount
joy of scientific discovery,which is all at the other
end. If we are going to do anything about that, we .just
have to do the hard-nosed work of finding every insecti-
cide, if this is the problem, which is being used in the
Michigan Basin States, where they are being applied,
how they are being used, and then trace them down to the
stream to determine whether they are a problem.
Prototype of that material will give us the so-called
"fingerprint" to check against when Don finds them in
the stream.
I might say this is a very hard and
expensive program, and if you want to engage in it, we
are ready.
DR. MOUNT: The Committee was especially
concerned in regard to the positive identification of
pesticides because o:f the recent evidence that there are
a number of plasticizers which have peaks corresponding
on the gas chromatograph to measures in chlorinated
hydrocarbons and other work done by the Department of
Agriculture, I believe, which showed that elemental
sulfur had several peaks which corresponded to known
hydrocarbon pesticides when analyzed on the gas
-------
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D. I. Mount
chromatograph. We talked with a number of chemists--
in fact we used many resource people on this-r-and we
invited some of our people from the Athens Analytical
Laboratory to talk with us about these problems and we
feel reasonably certain that we are not asking for any-
thing especially difficult in doing this infrared
analysis. There are other methods of doing this too,
but we felt this was perhaps the most feasible plan.
MR. STEIN: This is the one I think that
you can train most people to do.
Let me ask you thisi Do you have the
equipment in Duluth or are we going to have to do this
down in Athens, Georgia?
DR. MOUNT: Yes, we have the equipment
in Duluth.
MR. STEIN: Do you have people who know
how to do it?
DR. MOUNT: Yes, sir.
MR. STEIN: All right.
If we have thisr-again I throw this open
to the Confereesr-if you want to engage in this program,
this is going to be a hard one. And by the way, there
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D. I. Mount
is a lot of built-in opposition, as you may know, to
this program. You are taking on another class of
potential polluters who haven't considered themselves
as being polluters up to now and they are apt to be a
little touchy about this. But if you want to do this,
the Conferees should indicate this. We can set this
program up and try to do this with your cooperation and
see if we can trace this and crack one or two of the
tributary streams and cut this out and show results.
I think the advantage of this kind of work is once you
have isolated this and isolated the source and you have
stopped it, the results are spectacular. Everyone knows
that.
Are there any other questions?
MR. PURDY: Mr. Chairman.
MR. STEIN: Yes.
MR. PURDY: I might ask a question on the
capabilities of doing the analytical work in Duluth.
Was that answer, say, directed towards all of the
monitoring specified in this report or only that
monitoring required--
MR. STEIN: Only that monitoring, because
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D. I. Mount
I am sure a lot of the other stuff can be handled by
States and other people. The difficulty is this infrarec
work is kind of advanced. There are not too many machine
in the country, and once you get a machine,there are not
too many people who can run the machine.
MR. PURDY: Well,, it is proposed in the
report that a certain part of that monitoring be done
at the State levels, including this.
MR. STEIN: Do you have the capacity to
do this?
MR. PURDY: Well, that is why I say, in
this report, I think we need to take a hard look at it
to see where the capabilities lie and the budgetary
implications that might be--
MR. STEIN: That is right.
How much does one of those machines cost,
Don?
DR. MOUNT: Well, it is like buying a
car, of course.
MR. STEIN: Yes.
DR. MOUNT: It depends on where you begin
and end. Ours was $20,000.
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D. I. Mount
MR. STEIN: All right. This will give
you an idea.
MR. PURDY: I knew what the price was
before I asked it.
MR. STEIN: Then you need a $20,000-a-year
man to run it,you know, and it depends on whether the
State \\rants to take that on. I wasn't sure we could
even do this up here. I thought we may have to ship it
out, but I am glad to see we have the capacity.
But we would be delighted if the State
people can get that kind of capacity in the State lab to
do this kind of work.
MR. PURDY: I think the surveillance
proposed in this report will require us to mobilize all
of our capabilities at various State institutions and
at the Federal level, really. It is not something that
we can accomplish tomorrow, but we should work towards
that as rapidly as possible.
MR. STEIN: Are there any others?
MR. FRANGOS: Mr. Chairman, I am wonderind,
assuming you bought a medium-priced line in this equipmert,
what is the capability in terms of numbers of analyses
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775
D. I. Mount
you might expect a day, assuming an eight-hour day?
DR. MOUNT: Are you talking about the
machine time required or the preparation time or both?
MR. FRANGOS: Well, the net effect, how
many results can you produce in a day?
DR. MOUNT: There are people here who
probably can answer that better than I, but I would
suppose that we are talking about--! am going to guess--
MR. FRANGOS: Ball park estimate.
DR. MOUNT: --ten samples a day. You
noticed that in our report we have not suggested that
all samples be identified by infrared. We believe that
compositing, particularly of water samples, for example,
can be done without a great loss of precision.
MR. STEIN: By the way, on this you can
do a lot of educated guessing and cutting down by more
simplified procedures,so the samples you will be running
through are your pay dirt samples, hopefully, because
otherwise it is prohibitive.
Now, these are the kinds of factors that
the State has to consider before they consider getting
into this on their own.
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776
D. I. Mount
MR. FRANCOS: I just want to re-
emphasize the point you are making, because we have
been digging into this thing and there are a lot of
questions which are going to take all the way down to
this spectroscopy.
MR. STEIN: Yes. Again, I don't want
to push this. My notion is in using these sophisticated
machines and considering what they can do, as far as
a regulatory program, unless we have a man like a Dr.
Mount or a Dr. Grezenda * in Athens or Page Nicholson
who really know the field and have a pretty good notion
of what they find, we find that running the machine just
produces blanks day after day. In other words, it takes
an artist to run the machine, and this is very much part
of the problem.
DR. MOUNT: I might pass on to the Con-
ferees again the feeling of the Committee that because
the identification of these insecticides must occur at
such a low concentration and because the gas chromatograpljiy
is such an indefinite identification method, we felt that
it was imperative that there be some positive identifi-
cation by some other method such as the infrared techniqu*
* Dr. Alfred R. Grzenda (deceased)
-------
777
D. I. Mount
We feel that it would be better to do less samples and
get positive identification on them than to end up with
reams of data in which we are not certain of what we
have made. A chemist that I respect very much, who is
now with industries, once said that knowing the gas
chromatographic pattern of a chemical is about equivalen-
to knowing the weight of a man in order to identify him,
and I think this is perhaps a bit far but it is something
of the kind of thing we are talking about.
MR. STEIN: Well, maybe. That is for a
chemist. I am not sure,given the permutations and com-
binations, you are likely to find too many.
But again I think your point is well
taken. Any time we have a gas chromatographic identi-
fication, when we get opposition we have a big fight.
0. K.? Thank you.
May we go on to the coordinated monitor-
ing program.
Mr. Poston.
MR. POSTON: Mr. Pemberton.
While Mr. Pemberton is coming up here, I
have a brief statement on research activity of the Federdl
-------
778
H. W. Poston
government in response to Recommendation 22, and I
would like to enter it in the record.
MR. STEIN: Without objection, that will
be entered into the record as if read.
(The following is the document submitted
by Mr. Poston:)
RE C0 MMENDATION NO. 2 2
Recommendation No. 22 called for a
vigorous pursuit by research into nine pressing water
pollution problems of the Lake Michigan Basin. Many
of these problems are similar to those of other parts
of the country—hence, the summary of research activitie;
presented herein has been compiled from an accounting of
all research and demonstration grants or contracts
awarded in selected research categories since June 30,
1968. Some additional projects, not included in the
tabulation, were initiated during the interval between
the Conference adjournment on March 12, 1968, and the
June 30 date.
I. The problem of the control of
-------
779
H. W. Poston
over-production of algae encompasses four distinct break •
downs (or subprograms) of research as defined by the
FWPCA. Seven new projects were funded in the area of
concern involving 191,019 Federal dollars. Six projects
are of a research nature and one a demonstration.
II. Five subprograms of research are related
to the removal of dissolved chemicals (especially nutrients)
Twenty-eight projects were initiated with $1,902,671 of
Federal money. Research projects accounted for $901,93^
and demonstration projects $1,000,741.
III. Efforts aimed at the techniques for
restoring eutrophic lakes involved eight projects using
$291,245 of Federal money for partial support. All of
the funds are being used for research activities.
IV. The development of methods relating to th
ultimate disposal of residues removed from wastewaters
is covered by a single subprogram element. Grants and
Contracts in this coding were awarded for five projects
involving $454,099.
V. New techniques and methods of improved
treatment and handling of industrial wastes should be
forthcoming from 27 awards made in the 10 applicable
-------
780
H. W. Poston
segments of the R & D Program. Total Federal funds
committed to these projects is $4,714,992. Demonstra-
tion projects account for approximately 94 percent of
the total expenditure.
VI. Demonstrations into methods of combating
the problems associated with combined sewage and storm-
water discharges number 14. Of the $2,732,769 committed
all but 11 percent went toward the combined discharge
problem.
VII. No awards have been made to date in the
area of effective treatment facilities for ships. Sever
proposals are presently under review.
VIII. Improved and standardized procedures for
water quality tests are a function of both FWPCA in-hous
research and extramural research. In the latter case,
two Federally sponsored projects have been initiated at
places other than FWPCA laboratories. Funds committed
to this work were $27,303-
IX. Research into improved techniques for
water quality monitoring takes into consideration three
subprograms of the R & D Program. All together this
subject is receiving attention from 15 projects supporte
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7S1
C. Pemberton, Jr.
in part by 1,166,202 Federal dollars. Demonstration
projects received 67 percent of these funds.
MR. STEIN: Mr. Pemberton.
STATEMENT BY CARLYSLE PEMBERTON, JR.
CHAIRMAN, MONITORING COMMITTEE
MR. PEMBERTON: Mr. Chairman, Conferees
and ladies and gentlemen.
In accordance with Recommendation 17
contained in the summary of the first session of this
Conference, a Committee of representatives of the five
Conferees was organized to develop a recommended State-
Federal monitoring program for the Lake Michigan Basin.
The Committee report was transmitted to the Conferees
in January and I asfc that it be entered into the record
at this time.
MR. STEIN: Without objection, that will
be done.
MR. PEMBERTON: I will now present a
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782
C. Pemberton, Jr.
summary of the Committee report.
SAMPLING_PR 0 GRAM
The Committee considered the water pol-
lution problems of the basin, as developed at the first
session of the Conference, and concluded that a program
should be designed to monitor the significant tributary
streams near their mouths, and to monitor the open water
of the lake..
The tributary data would provide informa-
tion needed to determine the totalloadings to the lake
of important constituents, such as phosphorus, nitrogen,
dissolved solids, etc. The data would also provide a
means of measuring the success of pollution control
programs in the tributary basins.
The lake data would be used to measure thi>
long-term trends in the quality of Lake Michigan waters.
FWPCA (then the Public Health Service) sampled the lake
during the years 1962-64. The lake monitoring proposed
herein would utilize sampling points for which data are
available from the earlier surveys, thus providing a
basis for comparison. This part of the program would
also include the water quality data from water filtratioi
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783
C. Pemberton, Jr.
plants arranged for by the States in accordance with
Conference Recommendation 19.
In addition, the Committee felt that all
public beaches, and other beaches near known or sus-
pected sources of pollution, should be monitored during
the recreation season.
The Committee considered the long-term
monitoring needs indicated by the Thermal and Nuclear
Committee, and by the Pesticides Committee. The former
recommends no long-term monitoring, while the latter has
developed a specialized monitoring program. It was con-
cluded that in those instances where the monitoring
activities could be coordinated, the individual agencies
would handle the logistics involved.
The Committee recommends the following
sampling program:
1. Each State should monitor a designate
list of tributary streams near the points of discharge
to Lake Michigan, collecting samples at least monthly,
analyzing for a uniform list of ID basic parameters with
additional parameters where needed, and providing relate
flow data. Illinois will sample one tributary, Indiana
-------
784
C. Pemberton, Jr.
three, Michigan eighteen, and Wisconsin twelve.
2. FWPCA should monitor the open waters
of Lake Michigan, sampling a selected list of 51 station
at 3 depths in spring, summer and fall, and analyzing
for a selected list of 22 parameters. Analyses for the
same parameters should be performed monthly at the nine
water plants listed in Recommendation 19 of the summary
of the first session of the Conference.
3- The States should monitor all public
beaches, beaches ad.jacent to tributaries with pollutiona .
discharges, and beaches adjacent to high density popu-
lation areas, collecting samples twice monthly from
May 15 to September 15, and analyzing for total coliform
and fecal coliform.
METHODS
The Committee recognized that the success
of the proposed coordinated effort, involving several
laboratories and many scientific and technical personnel
would depend on the ability of the participating agencie;
to produce comparable data which could be used in assess-
ing basin-wide problems. It was considered to be
imperative that techniques used in collecting, preserving
-------
785
C. Pemberton, Jr.
and analyzing samples should be as comparable as possi-
ble.
The Committee therefore recommends that
a committee of laboratory directors be established to
adopt uniform procedures. The Committee recommends that
the existing Calumet Area Laboratory Directors Committee
be expanded to include the principals of the Lake Michi-
gan Conference, and that the laboratory directors of
water plants named in Recommendation 19 also be invited
to participate.
DATA STORAGE AND EVALUATION
In order that the data generated by the
proposed monitoring program be readily available to the
participants, the Committee felt that it would be advan-
tageous to have all information stored in one computer
facility. FWPCA has access to such a facility., and has
an operational system for storage and retrieval of water
quality data. The Committee also felt that each agency
should be responsible for evaluating and interpreting th
data which it collects.
The Committee therefore presents the fol-
lowing recommendations regarding data:
-------
786
C. Pemberton, Jr.
1. FWPCA should provide data storage and
retrieval services, the data to be supplied monthly by
the States for storage, and all data to be made availabl
to the States as needed. Data collected at water fil-
tration plants under Recommendation 19, and for the
Thermal and Nuclear, and Pesticides. Committees should
also be stored by FWPCA.
2. Each State and FWPCA should evaluate
and interpret data which it collects, in relation to wat
quality standards, recommendations of this Conference,
and long-tern; trends, and should present results of
such evaluation and interpretation at each future prog-
ress meeting of the Conference. Periodic evaluation
should also be made to determine the adequacy of the
sampling programs.
SPECIAL STUDIES
The Committee recognized the inherent pro)
lems associated with the sampling of tributaries in urbai
areas with multiple discharges, artificial channels,
semi-inclosed harbors, etc.
The Committee therefore recommends that
FWPCA and the States conduct coordinated special studies
-------
787
C. Pemberton, Jr.
in problem areas where the proposed routine monitoring
indicates the need for additional information.
In conclusion, on behalf of the Monitor-
ing Committee, I ask that the Conferees approve the
recommendations contained in the Committee report. I ha-
attached the list of recommendations from the report to
this summary for your reference.
Thank you.
MR. STEIN: Thank you, Mr. Pemberton.
(The following is a document submitted
by Mr. Pemberton:)
WATER QUALITY MONITORING PROGRAM
for
LAKE MICHIGAN and TRIBUTARY BASIN
REPORT OP THE MONITORING
COMMITTEE FOR THE CONFERENCE
IN THE MATTER OF POLLUTION
OF LAKE MICHIGAN AND TRIBUTA^
BASIN
November 15, 1968
-------
788
C. Pemberton, Jr
CONTENTS
Chapter
I INTRODUCTION 789
II RECOMMENDATIONS 793
III TRIBUTARY MONITORING PROGRAM
IV BEACH MONITORING PROGRAM
V MONITORING PROGRAM FOR THE OPEN
WATERS OF LAKE MICHIGAN 8l4
VI UNIFORM SAMPLING AND ANALYTICAL
PROCEDURES 8l9
VII WATER FILTRATION PLANT DATA OBTAINED
UNDER RECOMMENDATION 19 820
VIII ANALYSIS REPORTING 829
APPENDIX SIGNIFICANCE OF ANALYTICAL
DETERMINATIONS 832
LIST OF FIGURES AND TABLES
Figure Page
1 Lake Michigan Basin 7^1
2 Lake Michigan Basin Monitoring
Stations 800
3 Bottom Topography - Lake Michigan 817
4 Standard Form for Analysis Reporting... 831
-------
Table
789
C. Pemberton, Jr.
1 State Tributary Monitoring
Stations ............................... 801
2 Lake Michigan Tributary Inflow
Parameters ............................. 804
3 Recommended Analytical Schedule
for Tributary Monitoring Stations ...... 80?
4 Tributary Gaging Station Locations ..... Qo8
5 Lake Michigan Open Water Monitoring
Stations ............................... 8l8
6 Current Analytical Methods in Use
by the States and FWPCA ................ 822
Chapter I
INTRODUCTION
In accordance with Recommendation 17 of
the summary of the Conference in the matter of pollution
of the waters of Lake Michigan and its tributary basin
( Illinois-Indiana-Michigan-Wisconsin) , a committee was
appointed to develop specific recommendations for a
coordinated four State-Federal monitoring program in the
Lake Michigan J6asin and to submit recommendations to the
Conferees at the next progress meeting. The committee
consisted of:
-------
790
C. Pemberton, Jr.
Carlysle Pemberton, Jr., Chairman,
Federal Water pollution Control Administration, U. S.
Department of the Interior, Chicago, Illinois;
Allan R. Black, Division of Environ-
mental Protection, Wisconsin Department of Natural
Resources, Madison, Wisconsin;
Carl T. Blomgren, Jr., Illinois State
Sanitary Water Board, Chicago, Illinois;
John M. Bohunsky, Michigan Water Resources
Commission, Department of Natural Resources, Lansing,
Michigan;
Oral H. Hert, Indiana Stream Pollution
Control Board, Indianapolis, Indiana.
Other individuals who assisted the Com-
mittee in preparation of this report were: Robert J.
Bowden, Frederic D. Fuller, Almo H. Manzardo and Clifforc
Risley, Jr., all of the Great Lakes Region, Federal Watei
Pollution Control Administration.
This report includes the coordinated
State and Federal monitoring program proposed by the
Committee for the Lake Michigan basin (Figure 1), and
recommendations for its implementation. The Committee
-------
791
T=! 555 in Area
Land Area
67,900 Sq. Mi
22,400
45,500 Sq. Mi
Land Area Occupied by States:
Michigan (63.7?) 29,000 Sq. Mi
Wisconsin(30.8$) 14,000
Indiana ( 5.32) 2,400
I I Iinois ( 0.2£) 100
45,500 Sq. Mi
TotaI Length
Recreational
Beach
Public Recreation Areas
1,661 Miles
1,293 Miles
176 Miles
80 Miles
LAKE MICHIGAN BASIM
Figure I
-------
792
G. Pemberton, Jr.
considered the water pollution problems of the basin and
reviewed existing State and Federal monitoring programs
as they relate to the Lake Michigan basin needs. The
Committee determined that additional sampling stations
and analyses were required to provide adequate monitor-
ing coverage. The expanded program has been designed
to monitor the tributaries near their mouths for the
purpose of determining constituent loadings, and to
measure the long-range trends in the quality of Lake
Michigan. The program also includes the water quality
analyses at water filtration plants as arranged by the
States (Recommendation 19)•
The Committee considered the long-range
monitoring needs of the Thermal and Nuclear Committee
(Recommendation 10), and of the Pesticides Committee
(Recommendation 15). The Thermal and Nuclear Committee
recommends no long-term monitoring. The Pesticides
Committee has developed a biological, surface water, and
fish monitoring program to establish present concentra-
tions of pesticides in the lake and tributary waters
and to trace future trends. In reviewing the require-
ments of these Committees, it was concluded that their
-------
793
C. Pemberton, Jr.
specialized monitoring activites should not be included
in the Monitoring Committee Report. It was decided that
in those instances where monitoring activities could be
coordinated, the individual States could determine the
logistics of its program.
Chapter II
RECOMMENDATIONS
It is recommended that:
1. Each State monitor its tributary
streams near the points of discharge to Lake Michigan.
Tributary streams to be monitored are listed in Table I
and shown in Figure 2.
2. Tributary stream samples be collected
at least monthly and analyzed for the parameters shown
in Table 3.
3. All public beaches, beaches adjacent
to all tributaries with pollutional discharges and
beaches adjacent to all high density population areas
be sampled twice monthly from May 15 to September 15.
Samples should be analyzed for total coliform and fecal
coliform.
4. The Federal Water Pollution Control
-------
794
G. Pemberton, Jr.
Administration monitor the open waters of Lake Michigan.
Station locations are listed in Table 5 and shown on
Figure 2.
5- The open water samples be collected
during the spring, summer and fall of each year. A list
of parameters to be analyzed is tabulated in the report
on pages 20 and 21.
6. Flow data at all tributary monitoring
stations "be made available by the States.
7. In consideration of Recommendation 19.
which requires water quality analysis from nine water
filtration plants, the twice weekly analysis include at
least alkalinity, hardness, turbidity, coliform bacteria
and plankton algae. In addition, monthly analysis should
include the parameters recommended for open waters.
8. Techniques used in collecting, pre-
serving and analyzing samples be as comparable as pos-
sible. To facilitate the adoption of uniform procedures
a committee of laboratory directors representing the
Conferees should be established. It is suggested that
the Calumet Area Laboratory Directors Committee, which
was created in response to the needs of the 1965 Calumet
-------
795
G. Pemberton, Jr.
Area Enforcement Conference, tie expanded to include the
principals of the Four-State Enforcement Conference, and
that the water filtration plant laboratory directors be
invited to participate.
9- The Federal Water Pollution Control
Administration act as a central information center for
the data generated by the State and Federal Lake Michi-
gan monitoring program and the date be made available fo)
the use of each of the participating agencies.
10. Data collected from water intakes
under Recommendation 19, and for the Thermal and Nuclear^
and Pesticides Committees, be entered into the central
information facility. Analytical methods and reporting
procedures should be comparable and consistent with those
to be established by the proposed committee of laboratorj
directors.
11. Special coordinated State and Federa"
intensive sampling surveys be conducted at harbor areas
and tributaries where routine investigations Indicate the
need for additional studies.
12. Each State water pollution control
agency and the Federal Water Pollution Control Administrdtior
-------
796
C. Pemberton, Jr.
evaluate and interpret data collected by that agency in
relation to water quality standards, recommendations of
the Lake Michigan Enforcement Conference and long-term
trends, and present results of such evaluation and inter-
pretation at each future progress meeting of the Con-
ferees. In addition, the data collected should be
periodically evaluated for adequacy of each station
location, parameters analyzed and sampling frequency.
Chapter III
TRIBUTARY MONITORING PROGRAM
The Tributary Monitoring Program, as
recommended by the Monitoring Committee, includes a
network of 34 sampling locations of which one is located
in Illinois, three in Indiana, eighteen in Michigan
and twelve in Wisconsin. Water quality data obtained
from the proposed network of stations will reflect
input conditions of all major and other significant
tributaries to Lake Michigan. The locations of the
stations are shown in Figure 2, and listed in Table 1.
Locations of sampling stations were
selected by the individual States from their knowledge
of land base activities and its relationship to water
-------
797
C. Pemberton, Jr.
quality conditions. Stations were located as near the
mouth as possible so as to measure the quality charac-
teristics of the tributary just prior to its inflow to
Lake Michigan. Such factors as wind, location of waste-
water discharges, flow path of effluents, flow diversion
and other factors were considered during the selection
of sampling sites.
Each station should be sampled in
accordance with the sampling schedule shown in Table 3-
A list of 40 parameters (Table 2) has been developed to
define tributary water quality characteristics. The
significance of these parameters are summarized in the
Appendix. Included in the list are 16 parameters pro-
posed for routine monthly analyses for all tributaries,
11 parameters measured monthly on a "where appropriate"
basis, and 13 optional parameters. The "optional"
parameters are those additional analyses presently being
analyzed by some of the States. The parameters identi-
fied as "where appropriate" are those to be measured whe(re
land based activities and high population densities
indicate the need for such analyses. Stations designate^
for the "where appropriate" parameters (mostly heavy
-------
798
C. Pemberton, Jr.
metals) should initially be tested for six months and
then evaluated to determine if continued testing for
these parameters is warranted.
Quantitative benthos analyses should be
performed on either bottom or substrate samples,
depending on the procedure selected by the State, at
each of the 34 tributaries identified in Table 1. It
is recommended that such samples be collected for
analyses during August 1 to September 15 of each year
to allow direct comparison of results.
Each State will sample its own tributary
streams and be responsible for the analyses. Water
quality and benthic data obtained for each station will
be forwarded to the Lake Michigan Basin office on a
monthly basis for storage into the computer. Average dai
flow data for each sampling station will be provided by
each State agency for each sampling day. Flow informati<
will be provided annually or more frequently depending
on the availability of such information. A list of
existing and proposed tributary gaging stations from
which flow data will be developed is shown in Table 4.
The Committee has considered the value
-------
799
C. Pemberton, Jr.
of chemical analyses of bottom sediment samples for the
Tributary Monitoring Program, but felt that the present
sampling procedures will not produce representative
results at the proposed sampling points. New methods
are currently being developed and field tested which
would quantitatively measure sediment deposition. When
these methods are sufficiently developed sedimentation
sampling should be considered as an addition to the
Tributary Monitoring Program.
-------
8oo
'^U /
i\ I I
Evonston / _B'sRtc°r£Or O
MICfflGAN
INDIANA
LAKE MICHIGAN BASIN
STATIONS
o Tributary Stations
• Water Intakes
a Open Water Stations
Existing Gajinj Stations
Row Data Required
Indiana Hbi.Conol
Figure 2
-------
801
C. Pemberton, Jr.
TABLE 1
STATE TRIBUTARY MONITORING STATIONS
ILLINOIS
1. Pettibone Creek (Great Lakes Training Center
in yacht basin).
INDIANA
1. Burns Ditch (Midwest Steel catwalk at mouth).
2. Trail Creek (Second Street bridge in Michigan
City).
3. Indiana Harbor (Bridge on Dickey Road at East
Chicago).
MICHIGAN
1. Big Cedar River (M-35 Bridge in Menominee Countj
2. Black River (South wall of channel across from
State Park in Holland).
3- Black River (Dyckman Ave. bridge in South Haven
4. Boardman River (Park Street Bridge in Traverse
City).
5. Escanaba River (U.S. Highway 41 and 2 bridge at
Escanaba).
6. Ford River (Route 35 bridge at Ford River).
7. Grand River (South wall of channel below Corps
-------
802
C. Pemberton, Jr.
TABLE 1 (Cont'd.)
of Engineers office in Grand Haven).
8. Kalamazoo River (U.S. Highway 31 bridge in
Saugatuck).
9. Manistee River (Maple Street bridge in Manistee
10. Manistique River (West wall of channel south of
Ann Arbor R.R. Co. Ferry Slip).
11. Menominee River (Ogden Street bridge in
Marinette-Menominee).
12. Muskegon River (South wall of channel at Coast
Guard Station in Muskegon).
13. Pentwater River (North wall of channel at Coast
Guard Station in Pentwater).
14. Pere Marquette River (North wall of channel at
Coast Guard Station in Ludington).
15. Pine River (North bank at U.S.Highway 31 bridge
in Charlevoix).
16. St. Joseph River (C&O Railroad Bridge below
U.S. Highway 31 in St. Joseph).
17. White River (South wall of channel near red
tower near Whitehall).
-------
G. Pemberton, Jr.
TABLE 1 (Cont'd.)
18. White Pish River (U.S. Highway 2 bridge at
Rapid River).
WISCONSIN
1. East Twin River (17th Street bridge in Two Rivers)
2. Pox River (Mason Street bridge in Green Bay; in
winter at DePere Dam).
3. Kewaunee River (County Trunk E bridge*).
4. Manitowoc River (Tenth Street bridge in Mani-
towoc).
5. Menominee River (Upper Dam at Marinette).
6. Milwaukee River (Machinery Bay near mouth).
7. Oconto River (Highway 41 in Oconto).
8. Pensaukee River (County Trunk S bridge).
9. Peshtigo River (Highway 41 bridge in Peshtigo).
10. Root River (Marquette Street bridge in Racine).
11. Sheboygan River (Eighth Street bridge in
Sheboygan).
12. West Twin River (State Highway 42 bridge in Two
Rivers*).
* Tentative Sampling Location.
-------
804
C. Pemberton, Jr.
TABLE 2
LAKE MICHIGAN TRIBUTARY INFLOW PARAMETERS
(Monthly Analyses Except as Noted)
ALL TRIBUTARIES (l6)
1. Alkalinity, Total as CaCO
2. Biochmeical Oxygen Demand, BOD._
:?
3. Chloride
4. Coliform, Fecal
5. Coliform, Total
6. Dissolved Oxygen, DO
7. Hardness as CaGO^
8. Nitrate - Nitrite as N
9. Nitrogen, Ammonia as N
10. Nitrogen, Organic as N.
11. pH (field determination)
12. Phosphorus, Total as P
13. Solids, Dissolved
14. Solids, Suspended
15. Solids, Volatile Suspended
ID. Temperature
Visual observations should be made at the
-------
805
G. Pemberton, Jr.
TABLE 2 (Gont'd.)
time of sampling for floating debris, oil, grease, scum,
sludge solids, color, odor and turbidity.
OPTIONAL (13)
(Frequency determined by the States, see Table 3)
17. Alkalinity, P*, as CaC03
18. Calcium
19. Color
20. Conductivity
21. Fluorides
22. MBAS
23. Magnesium
24. Phosphorus, Soluble as P
25. Potassium
26. Radiation, Gross Alpha
27. Radiation, Gross Beta
28, Sodium
29. Turbidity
* Phenolphthalein
-------
806
C. Pemberton, Jr.
TABLE 2 (Cent'd.)
WHERE APPROPRIATE_{_lp
(Monthly frequency - may be dropped after six
months if no significant amount found)
30. Cadmium
31. Chromium
32. Copper
33. Cyanide
34. Iron, Total
35. Lead
36. Manganese
37. Nickel
38. Phenolic Compounds
39. Sulfate
40. Zinc
-------
807
TABLE 3
RECOMMENDED ANALYTICAL SCHEDULE FOR TRIBUTARY MONITORING
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808
C. Pemberton, Jr.
TABLE 4
TRIBUTARY GAGING STATION LOCATIONS
ILLINOIS
1. Pettibone Creek (flow data required)
I_NDIA_NA.
1. Burns Ditch
a. USGS 0935, on left bank on downstream
side of bridge on Central Avenue, 0.4
mile east of Gary and 0.4 mile downstream
from confluence of Deep River and Little
Calumet River.
b. USGS 0940, Little Calumet River, near
center of span downstream side of highway
bridge, 3/4 of a mile northwest of Porter
and 4.5 miles upstream from Salt Creek.
2. Trail Creek (flow data required)
3. Indiana Harbor (flow data required)
MICHIGAN
1. Big Cedar River (flow data required)
2. Black River, USGS 1088, on left bank 20 ft
upstream from bridge on State Road, 0.2 mile
downstream from South Branch, and 2-1/2
-------
809
C. Pemberton, Jr.
TABLE 4 (Cont'd.)
miles south of Zeeland.
3. Black River, USGS 1027, on left bank 50 ft
upstream from bridge on 66th Street, 4.9
miles northwest of Bangor.
4. Boardman River, USGS 1270, on right bank
25 ft downstream from Brown's Bridge, 300
ft downstream from East Creek, 0.9 mile
downstream from Brown's Dam, 1.0 mile north-
east of Mayfield, and 9»6 miles southeast
of Traverse City.
5. Escanaba River, USGS 590_, on right bank 50
ft downstream from Highway Bridge, half mile
downstream from Bobs Creek, three-quarters
of a mile northeast of Cornell, and l6 miles
upstream from mouth.
6. Pord River, USGS 595, on right bank 40 ft
downstream from county highway bridge, 1.4
miles downstream from Tenmile Creek, and
1-1/2 miles north of Hyde.
*
7. Grand River, USGS 1190, on right bank 500 ft
upstream from bridge on Fulton Street, 1.7
-------
C. Pemberton, Jr.
TABLE 4 (Cont'd.)
miles upstream from Plaster Creek, and at
mile 41.
8. Kalamazoo River, USGS 1085, on left bank 40
ft upstream from bridge on State Highway 89,
2.1 miles downstream from Swan Creek, 4.0
miles downstream from Calkins Dam, and 6.1
miles east of Fennville.
9. Manistee River, USGS 1260, on right bank 6-.4
miles northeast of Manistee, 6.4 miles south
of Onekama, 7.8 miles upstream from Manistee
Lake, and at mile 10.8.
10. Manistique River, USGS 5&5, on left bank 1
mile downstream from West Branch, 6 miles
northeast of Manistique, and at mile 19-5-
11. Menominee River, USGS 670, on left bank at
powerplant of Wisconsin Public Service Corp.,
0.5 mile upstream from Little Cedar River,
3.6 miles southeast of Koss, and at mile 24.7
12. Muskegon River, USGS 1220, on left bank in
tailrace of powerplant operated by Consumers
Power Co. at Newaygo, 600 ft downstream from
-------
811
C. Pemberton, Jr.
TABLE 4 (Cent'd.)
Penoyer Creek and at mile 39-1-
13. Pentwater River (flow data required)
14. Pere Marquette River, USGS 1225, on right
bank 20 ft upstream from highway bridge
at south edge of Scottville and 5-3/4 miles
downstream from South Branch.
15. Pine River, State Gage, north bank at U.S.
Highway 31 bridge in Charlevoix.
16. St. Joseph River, USGS 1020, on right bank
20 ft upstream from bri'dge on Indian Lake
Road.
Paw Paw River, USGS 1025, on right bank 200
ft downstream from County Highway Bridge,
three-quarters of a mile east of Riverside.
Prior to May 10, 1966, at site 250 ft up-
stream.
17. White River, USGS 1222, on right bank 30 ft
downstream from bridge on Fruitvale Road,
6.3 miles downstream from North Branch, and
6.9 miles northeast of Whitehall.
18. Whitefish River (flow data required)
-------
812
C. Pemberton, Jr.
TABLE 4 (Cont'd.)
WISCONSIN
1. East Twin River (flow data required)
2. Fox River, USGS 845, at Rapide Croche Dam,
2 miles upstream from Wrigbtstown, and 18
miles upstream from mouth.
3. Kewaunee River, USGS 852, on left bank just
downstream from bridge on County Trunk F,
2.3 miles west of Kewaunee.
4. Manitowoc River (flow data required)
5. Menominee River, USGS 670, on left bank at
powerplant of Wisconsin Public Service Corp.,
0.5 mile upstream from Little Cedar River,
3.6 miles southeast of Koss, and at mile 24.7-
6. Menominee River, USGS, 871.2, near left bank
on downstream side of 70th Street bridge in
Wauwatosa, 800 ft downstream from Honey Greek,
and 6-1/4 miles upstream from mouth.
7. Milwaukee River, USGS 870, on left bank near
northeast limits of Milwaukee in Estabrook
park, 2,000 ft downstream from Port Washington
Road Bridge and 6 miles upstream from mouth.
-------
813
C. Pemberton, Jr.
TABLE 4 (Gont'd.)
8. Oconto River, USGS 710, on left bank just
upstream from highway bridge, 2 miles upstream
from Christy Brook, 2 miles south of Gillett,
and at mile 29.
9. Pensaukee River (flow data required)
10. Peshtigo River, USGS 695, on left bank 75 ft
downstream from Chicago and Northwestern Rail-
way bridge, 0.5 mile downstream from Wisconsin
Public Service Corp. powerplant in Peshtigo,
and 11-1/2 miles upstream from mouth.
11. Root River, USGS 872.4, on left bank 30 ft
downstream from State Highway 38 bridge in
Racine, 350 ft downstream from Horlick Dam, and
5.2 miles upstream from mouth.
12. Sheboygan River, USGS 860, on left bank 0.7
mile upstream from bridge and State Highway
28, near west city limits of Sheboygan, and
4.2 miles upstream from mouth.
13. West Twin River (flow data required)
-------
814
C. Pemberton, Jr.
Chapter IV
BEACH MONITORING PROGRAM
The Shores of Lake Michigan are used
extensively for full body contact water recreational
activities. The Committee suggests, therefore, that
the States arrange for a sampling program at least
twice monthly at: 1) all public beaches, 2) beaches
adjacent to tributaries with pollutional discharges
and 3) beaches adjacent to high density population
areas. The samples should be collected from May 15
to September 15 and be analyzed for total coliform
and fecal coliform by the membrane filter technique.
Results of these samples should be forwarded to the
Federal Water Pollution Control Administration, Chicago
Regional Office, monthly for inclusion into the data
storage system.
Chapter V
MONITORING PROGRAM FOR THE OPEN WATERS OF LAKE MICHIGAN
The Federal Water Pollution Control
Administration (then the Public Health Service) surveyed
the open waters of Lake Michigan during the 1962-1964
Great Lakes-Illinois River Basins study.
The Monitoring Committee proposes that
-------
815
C. Pemberton, Jr.
an open water surveillance program be established
utilizing some of the sampling points for which
historical data is available. The sampling program
should consist or the 51 stations shown on Figure 2
and identified in Table 5« Each station should be
sampled at least three times per year, once each
during the spring, summer and fall seasons. Samples
should be collected from near the surface, at mid-depth,
and near the bottom at each station when the lake is
not stratified. Where the lake is stratified, samples
should be collected at the surface, just above and
below the thermocline, and near the bottom. Tempera-
ture profiles should be made at each station in order to
determine the location of the thermocline. A map of the
bottom topography of Lake Michigan is shown in Figure 3-
The 22 parameters selected by the
Committee to evaluate open water quality at each
station are:
1. Ammonia
2. Calcium
3. Chloride
4. Color, True
-------
8l6
C. Pemberton, Jr.
5. Dissolved Oxygen
6. Magnesium
7. Nitrate as N
8. Nitrogen, Organic as N
9. pH
10. Phosphorus, Total as P
11. Phytoplankton
12. Potassium
13- Radiation, Gross Alpha
14. Radiation, Gross Beta
15. Silica
l6. Sodium
17. Solids, Dissolved
18. Solids, Suspended
19. Sulfate
20. Total Plate Count
21. Turbidity
22. Zooplankton
The significance of each parameter is
summarized in the Appendix. Bottom sediments should be
analyzed for Chemical Oxygen Demand (COD), total phos-
phorus, iron, oil and grease, and percent volatile solid;
-------
8i7
68'
er-
46'
45'
SCALE OF MILES
0 10 ZO 30
68'
87 •
SOURCE: Reprinted from Geology of the
Great Lakes, by Jack L. Hough,
BOTTOM TOPOGRAPHY
LAKE MICHIGAN
22
Figure 3
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-------
819
C. Pemberton, Jr.
in addition to the determination of benthic population. •
Water and sediment samples should be
analyzed for copper, chromium, cadmium, lead, nickel
and zinc once every five years to detect any accumula-
tion of these elements in the lake. After two years
of operation, the data from the open water should be
evaluated to determine if station parameters can be
eliminated or if additional stations and parameters
are required.
The proposed network of 51 stations is
supplemented by the 9 water intake sampling points
selected by the Conferees.
Chapter VI
UNIFORM SAMPLING AND ANALYTICAL PROCEDURES
In order to properly evaluate changes in
water quality throughout the basin, data obtained from
monitoring stations must be uniformly reliable. Techniques
used in collecting, preserving and analyzing samples
should be sufficiently comparable so that data are
similar. A review of existing procedures indicates that
for some parameters the analytical methods in current
use will probably not produce consistent data. A review
-------
820
C. Pemberton, Jr.
of current methods in use by the States and the Federal
Water Pollution Control Administration is shown in
Table 6.
It is recommended that a committee be
appointed for the purpose of establishing mutually
acceptable procedures which will assure that the moni-
toring data produced will be similar. It is further
recommended that the Calumet Area Laboratory Directors
Committee, which was created in response to the needs
of the 1965 conference on the Calumet Area, be expanded
to include the principals of the Four-State Enforcement
Conference and that the water filtration plant labora-
tory directors be invited to participate.
Chapter VII
WATER FILTRATION PLANT DATA OBTAINED UNDER
RECOMMENDATION 19
Recommendation 19 of the Conference
Summary requires the State water pollution control
agencies to arrange for a broad spectrum of water
quality analyses, including planktonic algae counts,
to be performed at least twice weekly at the following
water filtration plants: Green Bay, Milwaukee, Evanston
-------
821
G. Pemberton, Jr.
*
Chicago (both plants), Gary, Michigan City, Benton
Harbor and Grand Rapids (see Figure 2). The results
are to be reported annually to the Conferees. It is
recommended that the twice weekly analyses include at
least alkalinity, hardness, turbidity, coliform bacteria
and planktonic algae. In addition, monthly analyses
should include the parameters recommended for open water
sampling stations.
The Committee considers these intakes
an essential part of the open v/ater monitoring program,
and the data collected from the intakes will be useful
in evaluating the long-range water quality trends in
Lake Michigan. This data should be entered into bhe
FWPCA data bank. Analytical methods and reporting
procedures should be consistent with those established
by the proposed State and Federal Laboratory Directors
Committee. Since it is anticipated that the water plant
laboratory directors will be responsible for some of
the analysis, they should be invited as participants
to the Laboratory Directors Committee.
-------
822
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829
C. Pemberton, Jr.
Chapter VIII
ANALYSIS REPORTING
At present each of the States and the
Federal Water Pollution Control Administration tabulates
results of its monitoring programs and makes the data
available to interested parties. Samples will be col-
lected from tributaries, open waters, water filtration
plants, and for the Thermal and Nuclear and Pesticides
Committees needs. Since this information should be
made available to all parties, It would benefit all
agencies if one agency had the responsibility of tabu-
lating the sampling data.
The Department of the Interior has a
central computer system which is capable of storing
and analyzing data on water quality. The computer can
perform calculations and present the data -J n almost any
form desired.
The Monitoring Committee proposes that
information from Lake Michigan sampling be transmitted
to the Federal Water Pollution Control Administration,
Lake Michigan Basin Office, for inclusion into the com-
puter. The data should be transmitted monthly on a
-------
830
G. Pemberton, Jr.
standard form to facilitate processing. A suggested
form is shown as Figure 4. Flow data should be trans-
mitted as it becomes available. The State and Federal
data should then be made available semi-annually by the
FWPCA to each of the participating agencies. Each State
water pollution control agency and the FWPCA should
evaluate and interpret data collected by that agency
in relation to water quality standards, recommendations
of the Lake Michigan Enforcement Conference and long-
term trends, and present results of such evaluation and
interpretation at each future progress meeting of the
Conferees. The data should also be periodically evalu-
ated for adequacy of each station location, parameters
analyzed and sampling frequency.
-------
831
DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
STORET SYSTEM-WATER QUALITY DATA STANDARD FORM FOR ANALYSIS REPORTING
LABORATORY BENCH DATA
ITATION
DESIGNATION
OATI Of 1
VR. MO.
DAY
•Tpu ...
1 1
1 I
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Alkalinity, Total CACO.-? UN1T mg/1
t i i
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iTruBlo chemical
i i i i i
(X
i — 1 — 1 — j
ITPU Chloride
i i
1 I
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Figure 4
35
-------
832
G. Pemberton, Jr.
Appendix
SIGNIFICANCE OF ANALYTICAL DETERMINATIONS
Parameters considered of significance in
the tributary and open water sampling of Lake Michigan
have been tabulated in Table 2 and on pages 815 and 8l6.
The definitions and significance of these parameters as
summarized from available information are listed below.
ALKALINITY
Alkalinity is the capacity of a water to
neutralize hydrogen ions and is expressed in terms of an
equivalent amount of calcium carbonate. Alkalinity
affects the treatment required for waters at water treat
ment plants when the water is used for industrial or
domestic purposes.
AMMONIA, NITROGEN
Ammonia results from the decomposition
of nitrogenous organic matter. Ammonia,under specific
conditions, is toxic to many forms of aquatic life and
is an added burden to water treatment and to disinfectio
of sewage plant effluent because of its high chlorine
demand. Its presence in water is an indicator of fresh
sewage pollution of domestic origin. It can also be
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833
G. Pemberton, Jr.
discharged from chemical or gas plants, ice plants, or
plants using "ammonia water" for scouring and cleaning
operations.
BIO-CHEMICAL OXYGEN DEMAND (BOD)
The introduction of organic waste into
water—whether the waste originates from domestic sewage
industrial processes, land runoff--results in a reaction
involving organic material, micro-organisms and the
natural biota present in the receiving water. Organic
matter is utilized as food by the organisms with the
accompanying consumption of oxygen. The BOD test is a
means of measuring the amount of unstable organic matter
in water.
CADMIUM
Cadmium is a metal found rarely in
natural water and is generally an indication of industrial
pollution. It is toxic to man when ingested and is toxi :
to aquatic life including fish. It is used in electro-
plating, photography, ceramics, pigmentation and nuclear
reactors.
CALCIUM
Calcium is an alkaline metal which
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834
C. Pemberton, Jr.
produces hardness in water. Many industrial water uses
require waters with very low calcium content. It is
also an important element in the growth of algae and
plankton.
CHLORIDE
Although chlorides are present to some
extent in most surface waters, they are also associated
with man's activities since the chloride anion is a
component of human waste and is widely used in many
industrial processes. Chlorides can impart a salty tast
to drinking water and render it unpalatable. Chlorides
are not removable by conventional water and waste treat-
ment methods. An increase in chloride concentration
would imply deterioration in water quality. Chloride
is a good indicator parameter because it does not.
deteriorate. In fresh water it may indicate the presenc
of animal pollution and industrial and agricultural
wastes.
CHROMIUM
Chromium is a heavy metal and is toxic
to man and aquatic life when present in either the hexa-
valent or trivalent form. It is used in metal pickling
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835
C. Pemberton, Jr.
and plating operations, in anodizing alumium, in leather
industry as a tanning agent, and in the manufacture of
paints, dyes, explosives, ceramics and paper. Its
presence in water is indication of industrial pollution.
COLOR
Colored water is an indication of either
suspended matter or dissolved matter. Color can be
natural or indicative of harmful wastes in the water,
capable of impairing the aesthetic value.
CONDUCTIVITY
Conductivity is a measure of the water's
capacity to conduct a current of electricity. Conductivity
changes in proportion to the quantity of dissolved mine-
rals in the waters. Changes in dissolved mineral conten ;
of water could be caused by natural conditions or pollu-
tion .
COPPER
Copper occurs in natural waters only in
trace amounts. Excessive quantities are generally
attributable to industrial wastes or to the use of
copper for the control of undesirable plankton organisms
Copper in water is detrimental for some industrial uses
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836
C. Pemberton, Jr.
and has been found toxic to aquatic organisms including
bacteria and fish.
CYANIDE
Cyanides are very toxic even at low con-
centrations and may occur in the effluents from gas
works and coke ovens, from scrubbing of gases at steel
plants, from metal cleaning and electroplating processes
and from chemical industries. Its presence in water is
an indication of industrial waste.
DISSOLVED OXYGEN
Dissolved oxygen is one of the most
important indications of the condition of water. It is
necessary for the existence, propagation and migration
of aquatic life. The knowledge of the oxygen content
is essential for the study of pollution effects on the
receiving waters. It is also of significance in evalu-
ating corrosiveness of water.
FLUORIDE
Fluorides are commonly used in drinking
water to decrease the incidence of tooth decay; higher
concentrations cause mottling of the teeth. An abnormal
fluctuation of the fluoride content in water is usually
an indication of industrial wastes. It is used for
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837
G. Pemberton, Jr.
preserving wood and mucilages, for the manufacture of
glass and enamels, in chemical industries, and as a
flux in the manufacture of steel and aluminum.
HARDNESS
Hardness is a characteristic which
determines the usefulness and economic value of water
for many purposes. Hard water forms scale in boilers,
heaters, radiators and pipes and adversely affects the
flow and heat transfer and accelerates boiler failure.
Hard water used for domestic purposes results in a
higher consumption of soap and detergents.
IRON AND MANGANESE
Iron and manganese at small concentration
are capable of staining laundry, porcelain and fixtures;
when waters containing iron and manganese are exposed to
the air, the water becomes turbid and unacceptable from
an aesthetic viewpoint. Both iron and manganese inter-
fere with laundry operation. Iron causes difficulty in
water distribution systems by supporting growths of iron
bacteria.
LEAD
Lead occurs in natural waters only in
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838
C. Pemberton, Jr.
trace amounts. Excessive quantities are generally
attributable to the action of water on lead pipe and
industrial wastes. Lead is toxic to man in low con-
centrations and is accumulative in body tissue. It is
also toxic to aquatic life, including fish.
MAGNESIUM
Magnesium, like calcium, is a hardness-
producing mineral and contributes to the problems of
scaling and reduced heat transfer in heating and cooling
systems. Magnesium is used in the manufacture of elec-
trical and optical apparatus and as a constituent of
light alloys.
METHYLENE BLUE ACTIVE SUBSTANCES (MBAS)
Methylene Blue Active Substances are
anionic surface-active agents which are a common
ingredient of many commercial synthetic detergents.
Their function in the detergent is to impart foam and
reduce surface tension to aid in the removal of dirt
particles. MBAS is toxic to fish, causes undesirable
tastes, and produces unsightly persistent foams.
NICKEL
Nickel occurs in natural waters only in
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839.
C. Pemberton, Jr.
trace amounts. It is toxic to aquatic life and harmful
to plant life when present in irrigation water. Nickel
is used in metal plating works. Its presence in water
is usually an indication of industrial wastes.
NITRATE-NITRITE NITROGEN
Nitrates are the end product of aerobic
stabilization of organic nitrogen and occur in polluted
waters that have undergone nitrification. Nitrites
occur as an intermediate stage of nitrification. Wastes
from sewage treatment plants, chemical fertilizer pro-
ducing plants, and land drainage are major sources of
nitrate pollution. Nitrates are considered one of the
key nutrients which contribute to algae blooms.
OIL - GREASE
The presence of oil and grease in water
is aesthetically objectionable and may impart taste and
odor to drinking water. Possible contributors to oil
pollution are all industries engaged in production,
transportation, handling or use of oils.
PH
Hydrogen ion concentration is an indicate
as to whether water is acid, neutral or alkaline. Acidi
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840
G. Pemberton, Jr.
waters disrupt biological activity, cause corrosion of
steel and concrete, intensify the effect of toxic
materials such as sulfides and cyanides, and interfere
with water plant coagulation practices. Alkaline waters
also disrupt biological activity, precipitate iron,
calcium and magnesium and increase the toxicity of
ammonia and amines.
PHENOLIC COMPOUNDS
Phenolic material, when found in water
is usually the result of pollution by industrial wastes.
Phenols are widely used in the synthesis of many organic
compounds. Waste products from oil refineries, coke
ovens, and chemical plants may contain high concentratio
Very low concentrations of phenols will impart a dis-
agreeable taste to water when chlorinated.
PHOSPHORUS
Phosphorus, like the nitrogen compounds,
is a necessary nutrient for biological activity and
algal blooms. Phosphorus enters the water environment
in treated sewage since it is normally present in human
and animal waste products. Synthetic detergents contain
high concentrations of phosphorus. Phosphorus is also
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841
C. Pemberton, Jr.
present in surface runoff, particularly from fertilized
fields.
PHYTOPLANKTON
Plant micro-organisms, such as certain
algae, living unattached in the water. This suspended
microscopic plant life is only slightly motile and
exists at or near neutral buoyancy. As such they are
subject to lake currents and represent the microflora
of the sampling site at the time of sampling.
RADIATION
Gross Alpha and Gross Beta. By estab-
lishing background levels of alpha and beta radiation
in waters, any abnormal deviations will be indicative
of pollution from industrial sources, such as nuclear
power plants, or of fallout. A high concentration of
beta radioactivity is an indication of the need for
further investigation to prevent the ingestion of or
external exposure to dangerous amounts of specific
radioisotopes.
SODIUM AND POTASSIUM
Sodium and potassium are usually found
in low concentrations in natural waters. Sodium has a
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842
C. Pemberton, Jr.
degrading effect on soil used for agricultural purposes.
Potassium is used in fertilizers and some varieties of
glass. Sodium is a very active metal that does not occur
free in nature. They are important elements to the
growth of algae.
SOLIDS, DISSOLVED
Dissolved solids are both organic and
inorganic matter, which when excessive render drinking
water unpalatable and increases cost of water treatment
for many other uses. The presence of dissolved solids
may be an indication of industrial wastes.
SOLIDS, SUSPENDED
In natural waters, suspended solids con-
sist normally of eroded silt, organic detritus and plank-
ton. Suspended solids in the stream are all considered
to be settleable solids since time is not a limiting
factor. Suspended solids impart turbidity to the water
and may interfere with many industrial processes.
SOLIDS, VOLATILE SUSPENDED
Volatile suspended solids is a measure
of the organic or oxygen-consuming matter in the suspend*
solids.
d
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843
C. Pemberton, Jr.
SILICA
The element silicon is not found free in
nature but occurs as silica in sand or quartz and as
silicates in feldspar, kaolinite, and other minerals.
Silicon dioxide, or silica, is insoluble in water or
acids, except hydrofluoric, but it may occur in natural
waters as finely divided colloidal suspended matter.
Silicon is used in metallurgy and silica is widely
employed in industry for making glass, silicates,
ceramics, abrasives, enamels and petroleum products.
Silicates have been used in water treatment as coagu-
lants and corrosion inhibitors while sodium silico-
fluoride has been used as a fluoridating agent. Silicon
is an important nutrient for some biota.
SULPATES
Sulfate is a component of the dissolved
ionic solids present in most surface waters. Sulfates
in combination with sodium or magnesium can produce a
laxative effect. Sulfates may be discharged from tanner
textile mills, and sulfate pulp mills.
TEMPERATURE
Temperature affects the biological and
es
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844
C. Pemberton, Jr.
sanitary characteristics of a body of water. Water at
a higher temperature has a lower capacity for oxygen
than water at a lower temperature. Temperature differ-
entials also determine the vertical mixing characteris-
tics of a large lake. Variations in the temperature of
the water can be caused by waste discharges or natural
seasonal or air fluctuations of the temperature.
TOTAL PLATE COUNTS
Total plate counts are approximate
enumerations of total bacteria multiplying at tempera-
tures of 35°C. or 20°G. on any one of several nutrient
agars. They yield useful information concerning the
quality of water tested and the total bacterial densitie
in water correspond to the decomposition of organic
matter. Total plate counts are used in lieu of the
coliform test because past experience indicates that
coliform counts usually are too low to be measurable in
the open waters of Lake Michigan.
TURBIDITY
Turbidity is attributable to suspended
and colloidal matter which diminish penetration of
light. The turbidity of waters for domestic use is an
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845
C. Pemberton, Jr.
indicator of the degree of treatment necessary.
ZINC
Zinc is present in most natural waters
only in trace amounts. It can be toxic to man and
aquatic life and its presence is related to industrial
wastes or to the corrosive action of water on galvanized
piping. Zinc is used in paint pigments, Pharmaceuticals
dyes, insecticides, comestics and in numerous other
products.
FECAL COLIFORM
Fecal coliform are indicators of recent
contamination with feces of warm-blooded animals and may
indicate the presence of pathogenic organisms.
TOTAL COLIFORM
The coliform group of organisms includes
all aerobic and anaerobic, gram negative, non-spore
forming rod shaped bacteria that ferment lactose with
gas formation within 48 hours. It includes Escherichia
coli strains which are usually of fecal origin and
intermediate and Aerobacter aerogenes strains which
are usually of soil, vegetable or other non-fecal origir
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846
G. Pemberton, Jr.
ZOOPLANKTON
Animal micro-organisms living unattached
in water. They include small Crustacea, such as daphnia
and cyclops, and single-celled animals as protozoa, etc.
These suspended microscopic animal life are only slightl
motile and exist at or near neutral buoyancy. As such
they are subject to lake currents and represent the
microfauna of the sampling site at the time of sampling.
MR. STEIN: Any questions or comments?
If not, thank you very much, sir, for a
very complete report.
MR. PURDY: Mr. Stein, one question.
MR. STEIN: Yes.
MR. PURDY: Carlysle, on No. 11, this is
the one on the special studies, where routine investi-
gations indicated the need for additional studies, did
the Committee have a recommendation on who would deter-
mine the need? I mean how was this determined?
MR. PEMBERTON: I would say that we
recommended that each agency evaluate the data that it
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847
G. Pemberton, Jr.
collects and, therefore, I think the agency would be
in a position to determine that need.
MR. PURDY: 0. K.
MR. STEIN: Thank you, Mr. Pemberton.
MR. POSTON: Mr. Pemberton, you have a
contingency plan report. Could we enter that in the
record without a summary being given at this time?
MR. PEMBERTON: Yes, if you like.
MR. POSTON: To save time, this might be
helpful.
MR. STEIN: If there is no objection,
that will be done.
MR. PEMBERTON: In connection with my
contingency plan report, I was going to ask that the
National Multi-agency Oil and Hazardous Materials
Contingency Plan be entered in the record of this
Conference, if you don't mind.
MR. POSTON: Very good.
MR. STEIN: Without ob.jection, that will
be done.
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848
C. Pemberton, Jr.
(The following are the documents sub-
mitted by Mr. Pemberton:)
CONTINGENCY PLAN FOR tOLLUTIONAL SPILLS
IN THE GREAT LAKES REGION
CONFERENCE IN THE MATTER OF POLLUTION OF
LAKE MICHIGAN AND TRIBUTARY BASIN - SECOND SESSION
FEBRUARY 25, 19^9
People throughout the world became aware
of the destructive characteristics of oil spilled in
the environment., and the inadequacy of current measures
for dealing with a major spill when the Torrey Canyon
ran aground and broke up off the coast of England in
March of 1967. On May 26, 19^7, the President of the
United States directed the Secretaries of the Interior
and Transportation to undertake a .joint study to deter-
mine how the resources of the Nation could best be
mobilized to counteract the pollutional effects of spill
of oil and other hazardous materials in our waterways.
One of the major needs disclosed by the study was for
the development of a contingency plan to deal with
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849
C. Pemberton, Jr.
emergencies involving Federal, State and local agencies
with due regard for each agency's statutory responsi-
bility and capability. On June 7, 1968, the President
directed the Secretaries of the Interior, Defense, and
Transportation and the Director of the Office of Science
and Technology to assume special responsibilities in
strengthening our preparedness to act in the event of
a major oil spill. The Secretary of the Interior was
directed to assume primary responsibility for completing
by July 31, 1968, a draft National Multiagency Contingen
Plan for responding to ma.jor pollutional spills. The
National Plan was approved by the President on November
13, 1968. At this time I ask that the National Multi-
agency Oil and Hazardous Materials Contingency Plan be
entered in the record.
The National Plan provides guidelines
for the establishment of regional contingency plans.
Regional offices of the FWPCA have developed framework
regional contingency plans and are now expanding these
plans in accordance with provisions of the National Plan
Copies of the framework plan for the Great Lakes Region
were distributed to State water pollution control agenci
es
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C. Pemberton, Jr.
for their review and comment in August 1968. We have
received comments from only one State in the Lake Michi-
gan Basin.
The purpose of the Regional Contingency
Plan is to present guidelines to minimize the pollutionafL
effects of a major spill of oil or other hazardous
materials within the Great Lakes Region.
The objectives of this plan are to develop
effective systems for discovering and reporting the
existence of a pollution incident, promptly instituting
measures to restrict the further spread of the pollutant
application of techniques to cleanup and disposal of the
collected pollutants, and institution of action to
recover cleanup costs and effect enforcement of existing
statutes.
The Regional Plan includes a Federal
regional reaction team called the Regional Operations
Team (ROT) and a Regional Operations Center (ROC). The
ROT consists of a representative from each of the sig-
natory agencies to the National Plan. The Federal Water
Pollution Control Administration, Coast Guard, Army
Corps of Engineers, Public Health Service, and Office
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G. Pemberton, Jr.
of Emergency Preparedness have representatives on the
Regional Operations Team. In accordance with the Nation
Plan^ the Regional Operations Center is the regional
site for activities relative to pollution incident
situations. The ROC will be activated at either the
Ninth Coast Guard District Office in Cleveland or the
Second Coast Guard District Office in St. Louis, depend-
ing upon the location and circumstances of a spill.
Coordination and direction of Federal
pollution control efforts at the scene of a pollution
incident shall be accomplished through an On-Scene
Commander (OSC). The On-Scene Commander (OSC) is the
single executive agent predesignated by the Regional
Plan to coordinate and direct such Federal pollution
control efforts. The Coast Guard Captains of the Port
are the On-Scene Commanders for the Great Lakes and
inland navigable waterways. The Department of the
Interior furnishes or provides for OSC's in other areas
within the Great Lakes Region.
Recommendation 18 contained in the sum-
mary of the first session of this Conference called for
the State water pollution control agencies and the U.S.
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832
C. Pemberton, Jr.
Department of the Interior to compile an inventory of
all sites where potential exists for major spills of
oil and other hazardous material. The inventory of
potential sources of pollution will be continually
updated by the FWPCA with the assistance of the States.
In addition, FWPCA is developing an inventory of re-
sources which may be useful in combating spills.
To be more effective in combating the
pollutional effects of a major spill., further coordi-
nation among the various levels of government is needed
and will be sought by FWPGA in the coming months.
The Great Lakes Regional Contingency
Plan encourages the development of State and local
government capabilities and private capabilities to
handle major pollution incidents.
The response efforts of the various level
of government must be fully coordinated to achieve the
most effective pattern of response. To accomplish both
the development of capabilities and coordination of
responses, State and local agencies are invited to
participate in the regional planning necessary to
accomplish the objectives of this Plan.
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853
C. Pemberton,, Jr.
NATIONAL MULTIAGENCY
OIL AND HAZARDOUS MATERIALS
CONTINGENCY PLAN
SEPTEMBER 1968
NATIONAL MULTIAGENCY OIL AND HAZARDOUS MATERIALS
POLLUTION CONTINGENCY PLAN
This National Multiagency Contingency
^ prepared at the direction of President Lyndon B.
Johnson^ provides a mechanism for coordinating the
Federal response to a spill of oil or other hazardous
materials. Agencies signatory to this Plan are:
Department of the Interior
Department of Transportation
Department of Defense
Department of Health., Education,
and Welfare
Office of Emergency Planning
September 1908
-------
854
C. Pemberton, Jr.
TABLE OF CONTENTS
PAGE
ABBREVIATIONS AND DEFINITIONS 855
INTRODUCTION 85?
POLICY ON FEDERAL RESPONSE TO
POLLUTION INCIDENTS 860
RESPONSIBILITIES 862
NATIONAL INTERAGENCY COMMITTEE 865
JOINT OPERATIONS CENTER 86?
ORGANIZATION AND FUNCTIONS IN
FEDERAL RESPONSE SITUATIONS 8?0
FEDERAL RESPONSE OPERATION -
RESPONSE PHASES 8?3
PROCEDURES TO BE FOLLOWED FOR THE
PURPOSE OF WATER POLLUTION CONTROL 8?7
ADDITIONAL PROCEDURES APPLICABLE
TO CERTAIN POLLUTION INCIDENTS 8?9
LIST OF ANNEXES
I SIGNATORY AGENCIES
II DISTRIBUTION
III SUMMARY OF STATUTORY AND LEGAL AUTHORITIES
IV NATIONAL INTERAGENCY COMMITTEE (NIC)
V JOINT OPERATIONS CENTER (JOC)
VI REGIONAL COORDINATING CENTERS
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855
C. Pemberton, Jr.
VII SALVAGE
VIII COMMUNICATION AND REPORTS
IX LOCAL GOVERNMENT AND PRIVATE INTERESTS
X FUNDS
XI LEGAL CONCEPTS AND PROCEDURES
XII PUBLIC INFORMATION
XIII TECHNICAL INFORMATION
Abbrevia,tio n s an d Def i n ijb i o n s
Department and Agency Title Abbreviations:
DHE¥ - Department of Health, Education,
and Welfare
DOD - Department of Defense
DOI - Department of the Interior
DOT - Department of Transportation
OEP - Office of Emergency Planning
FWPCA - Federal Water Pollution Control
Administration
USCG - U. S. Coast Guard
USPHS - U. S. Public Health Service
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856
C. Pembertorij Jr.
Operation Title Abbreviations
JOG - Joint Operations Center
JOT - Joint Operations Team
NIC - National Interagency Committee for
Control of Pollution by Oil and
Hazardous Materials
OSC - On-Scene Commander
ROC - Regional Operations Center
ROT - Regional Operations Team
Definitions
Pollution Incident - is a discharge of
oil or other hazardous substance of such magnitude or
significance as to require immediate response to contain
cleanup or dispose of the material to prevent a substan-
tial threat to public health or welfare.
Ma jo r Pis a st. e_r_ - is any flood, drought,,
fire, hurricane, earthquake, storm or other catastrophe
in any part of the United States, which, in the deter-
mination of the President, is 'or threatens to become
of sufficient severity and magnitude to warrant disaster
assistance by the Federal Government to supplement the
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857
C. Pemberton, Jr.
effort and available resources of States and local
governments in alleviating damage, hardship or suffering
Oil - is any kind or form of oil includin
but not limited to fuel oil, sludge oil refuse and oil
mixed with wastes other than dredged spoil.
Hazardous Substance - is matter of any
description or origin other than oil, which when dis-
charged into any waters in substantial quantities,
presents an imminent and substantial hazard to the
public health or welfare, including fish, shellfish,
and wildlife and shorelines and beaches.
NATIONAL MULTIAGENCY OIL AND HAZARDOUS MATERIALS
POLLUTION CONTINGENCY PLAN
Introduction
The development of a National awareness
and concern over the hazards and damages to water related
resources from oil pollution can be traced in large part
to the sinking of the tanker, TORREY CANYON. This marin
casualty off the south coast of England, caused a massiv
oil spill with a tragic destruction of water related
resources along both the English and French coasts. But
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C. Pemberton, Jr.
more importantly, it galvanized the United States into
action and caused us to assess our own capabilities to
cope with massive spills of oil or other hazardous sub-
stances. President Johnson recognized this need by
directing the Secretary of the Interior and the Secretar;
of Transportation to study the Nation's capabilities for
handling such disasters. The results of this study are
detailed in "Oil Pollution - A Report to the President."
This report documented our unpreparedness to deal with
a catastrophic oil spill, and clearly pointed to many
areas of needed Federal action.
On June 7, 1968, the President, by memo-
randum, directed the Secretaries of Defense, Interior an
Transportation and the Director of the Office of Science
and Technology to assume special responsibilities in ord^r
to strengthen this Nation's preparedness to act in the
event of an oil spill pollution emergency along our
coasts and waterways. The President further directed the
Secretary of the Interior to assume primary responsibili
for completing, at the earliest possible date, multi-
agency contingency plans for responding to oil spill
emergencies. This document is directed toward fulfillin;
1
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C. Pemberton, Jr.
the President's directive.
Purpose and_0bjectives
This plan represents an agreement among
concerned Departments and agencies of the Federal Govern-
ment for a pattern of coordinated and integrated respons( :
to pollution incidents. It establishes a National
reaction team and provides guidelines for the establish-
ment of regional contingency plans and reaction teams.
This plan promotes the coordination and direction of
Federal, State and local response systems and encourages
the development of local government and private capabili-
ties to handle such pollution incidents.
The objectives of this plan are to develoj
effective systems for discovering and reporting the
existence of a pollution incident, promptly instituting
measures to restrict the further spread of the pollutant
application of techniques to clean up and dispose of the
collected pollutants, and institution of action to recover
cleanup costs and effect enforcement of existing Federal
statutes. Regional contingency plans will provide furth<
detailed guidance toward the accomplishment of these
objectives .
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860
C. Pemberton, Jr.
S_c_o£e_
This plan will be effective for all
United States navigable waters including inland rivers,
Great Lakes, coastal territorial waters, and the con-
tiguous zone and high seas beyond this zone where there
exists a threat to United States waters, shoreface, or
shelf-bottom.
The provisions of this National Multiagem
Oil and Hazardous Materials Pollution Contingency Plan
are applicable to all Federal agencies signatory thereto
Implementation of this plan will be compatible and com-
plementary to currently effective assistance plans,
agreements, security regulations, and responsibilities
based upon Federal statutes and executive orders (see
Annex #3)•
Policy on Federal Resgions.e_to__Po^luti_g_n_I_nc_3_dent_s_
The Federal policy to prevent, control
and abate water pollution has been established by
statute, for the purpose of protecting and enhancing
the quality and value of our Nation's water resources.
To this end, the discharge of oil under certain condi-
tions is prescribed and the discharge of oil from any
y
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C. Pemberton, Jr.
boat or vessel into the navigable waters of the United
States prohibited; the Secretary of the Interior may
accomplish the removal of such discharged oil if the
person responsible fails to remove it from the navigable
waters and adjoining shorelines; oil, classified as a
refuse, may not be discharged; and oil may not be dis-
charged from vessels in international waters near the
shores of the United States. Additionally, the Presiden
has established the policy that appropriate Federal
resources will be used for dealing with the pollution
aspects of oil spill problems and to protect our natural
resources from their consequences.
In the event that the person responsible
for a pollution incident does not act promptly, does not
take or propose to take actions to contain, clean up and
dispose of pollutants which are concurred in by the DOI
representative or ROT, or the discharger is unknown,
further Federal response actions may be instituted. A
primary thrust of regional plans is to encourage the
person responsible for the discharge of oil or other
hazardous substances causing the pollution incident to
remove the pollutant or adequately mitigate its effects.
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C. Pemberton, Jr.
When such person is taking adequate action., the princi-
pal thrust of Federal activities shall be to observe and
monitor progress and to provide advice and counsel as
may be necessary.
The Federal agencies signatory to this
plan possessing facilities or other resources which may
be useful in a Federal response situation will make such
facilities or resources available for use in accordance
with this plan as supplemented by the regional plans.
Agencies making resources available to OSC or through
JOG shall make such assignment consistent with opera-
tional requirements, within the limits of existing
statutory authority and without reimbursement, except
where reimbursement is specifically required by statute
or by agreement with another agency.
Responsibilities
Each of the agencies signatory to this
plan has responsibilities established by statute, Execu-
tive Order or Presidential Directive, which may bear on
the Federal response to a pollution incident. This plan
does not intend to delegate any of these responsibilitie
but intends to promote the expeditious and harmonious
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C. Pemberton, Jr.
discharge of these responsibilities through the assign-
ment of authority for action to those agencies having
the most appropriate capability to act in each specific
situation. Responsibilities and authorities of these
several agencies relevant to the control of pollution
incidents are detailed in Annex 3-
Within the framework of this plan, each
agency also accepts certain responsibilities to promote
the effective operation of the plan. These considera-
tions are spelled out in greater detail in the regional
plans. For each agency these are:
The Department of the Interior is respon-
sible for administering, developing and revising the
National Multiagency Plan for Oil and Hazardous Material
Pollution and for developing and revising the regional
plans. In this activity DOI will give full consideratio
to the recommendations of NIC concerning the interpre-
tation, revision and application of the plan. Through
the resources of the Federal Water Pollution Control
Administration, DOI will provide technical expertise to
JOT and the ROT's relative to water pollution control
techniques. The assessment of damage to fish and wildli
fe
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C. Pemberton, Jr.
resources will be made by the appropriate DOI agency.
The D e p a r t m e n t of T r an s port at ion , through
the U. S. Coast Guard, supplies expertise in fields of
navigation, port safety, and security, and maritime law
enforcement.
The fceofegeicrPanning will
maintain an awareness of pollution incidents as they
develop. The normal OEP procedures will be followed to
evaluate any request for a major disaster declaration
received from a State. If the President declares a
major disaster under PL 8l-8?5 for the pollution inci-
dent, the Director, OEP, will provide coordination and
direction of the Federal response in accordance with OEP
policies and procedures.
^ne Department of Defense, consistent
with its operational requirements, may provide military
assistance in critical pollution incidents and in the
maintenance of navigation channels salvage, and removal
of navigation obstructions.
Th e D e_p a r_t men. t_of__H e_a It. h_ ,__£ du ca t i.o_n_,__an_d
Welfare is responsible for providing expert advice and
assistance in those pollution incidents that constitute
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C. Pemberton, Jr.
an immediate threat to public health.
All of the Federal agencies signatory to
this plan are responsible for making resources available
to other Federal agencies as described in the plan's
policy for Federal response; for providing official
representation to NIG, JOT and ROT; for making informa-
tion available as may be necessary; and, for keeping
JOT informed, consistent with National security consider^-
tions, of changes in the availability of resources that
would affect the operation of this plan.
National Interagency Committee
The National Interagency Committee (NIC)
is the principal instrumentality for plans and policies
of the Federal multiagency response to pollution incidents
The Committee is composed of representatives of the
agencies signatory to this plan. The representative of
DOI will serve as chairman of NIC and the representative
of DOT will serve as vice-chairman.
NIC will develop procedures to promote
the coordinated reaction of all Federal, State, local
government and private agencies to pollution incidents,
and will make recommendations to DOI concerning the
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C. Pemberton, Jr.
interpretation, revision and application of the Rational
plan. To facilitate the development of such procedures,
NIC may request each agency to supply pertinent data and
information on its reaction capability and operating
procedures.
NIC will review regional contingency plan
and make recommendations for improving the effectiveness
of such plans. NIC will also coordinate and review
reports from JOG and the ROC on the handling of major
or unusual pollution incidents for the purpose of analyz
such incidents and recommending needed improvements in
the contingency plans.
In considering the National posture for
reaction to pollution incidents, the NIC will consider
and make appropriate recommendations relating to the
training of reaction team personnel, research, develop-
ment, test and evaluation activities needed to support
reaction capabilities, equipment and material stockpiling
and other matters as the need arises.
NIC will establish and maintain liaison
with the U. S. National Committee for the Prevention of
Pollution of the Seas by Oil to promote a consistent
.ng
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C. Pemberton, Jr.
United States posture regarding oil pollution control.
Summary reports and other documents of an evaluative
nature will be coordinated through NIC.
Joint 0 per a t l^on s_ C en t_e_r
The Joint Operations Center (JOG) is the
Washington, D. C., headquarters site for activities
relative to pollution incidents. JOG will be accommo-
dated in quarters described in Annex 5, and will provide
communications, information storage and other necessary
physical facilities to promote the smooth and adequate
functioning of this activity.
The Joint Operations Team (JOT) consists
of representatives of the signatory agencies and shall
act as an emergency response team to be activated in the
event of a pollution incident involving oil or other
hazardous material which: (a) exceeds the response
capability of the region in which it occurs, (b) transec
regional boundaries, or (c) involves National security
or major hazard to substantial numbers of persons or
Nationally significant amounts of property. A repre-
sentative of DOI shall be the Chairman and a represen-
tative of DOT shall be Executive Secretary of JOT. The
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C. Pemberton, Jr.
Executive Secretary shall maintain records of the JOT
activities along with National and regional plans for
pollution emergency responses. When JOT is activated
because of a water pollution emergency situation, the
Chairman of JOT will assume the role of principal
coordinator of JOT activities .
A continual surveillance of incoming
reports from the ROC's will be maintained in JOG. When-
ever reports which require or appear to require a
iiational reaction are received, the members of JOT will
be advised of the receipt of such reports and JOT may
be activated on the request of any member.
During pollution incident operations,
JOG will act as the focal point for national public
information releases and for information transfer betwee|i
the OSC and the Washington, D. C., headquarters of the
agencies concerned, thereby promoting rapid and accurate
information transfer and minimizing the radiation of
spurious and incomplete information about any given
situation. Public information activites are considered
in Annex 12.
During a pollution emergency, JOT will
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G. Pemberton, Jr.
evaluate reports coming from the OSC, requesting
additional information as may be indicated. JOT will
coordinate the actions of other regions or districts
in supplying needed assistance to the OSC. JOT may
recommend courses of action for consideration by the
OSC but has no operational control of the OSC. On the
basis of reports and information about a pollution
incident, JOT may request other Federal, State, local
government or private agencies (whether or not they
are signatory to this document) to consider taking
action under whatever authorities they may have to
accomplish needed objectives for the purpose of pollu-
tion control. JOT may recommend the deployment of
personnel to monitor and observe the handling of any
pollution incident. Copies of all reports and documents
developed by JOT and ROT as a result of pollution
incidents will be provided to NIC for its evaluation.
Regional Operations Center
The Regional Operations Center (ROC) as
established by each regional contingency plan, is the
regional site for activities relative to pollution
incident situations. ROC will be accommodated in physicb.1
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C. Pembertorij Jr.
quarters described in each regional plan and will func-
tion at the regional level similarly to JOG. The
Regional Operations Team (ROT) will perform functions
within the region similar to those performed Nationally
by JOT. Additionally> the ROT shall determine when a
shift of on-scene coordination from the predesignated
OSC to another agency is indicated by the circumstances
or progress of a pollution incident. The organization
and functions of the ROT are described in each regional
contingency plan.
Organization and Functions
in. Fede r a 1 Res p on s e Si/fcuati ons
Geographic Areas
This contingency plan concerns all of the
navigable waters of the United States and areas imme-
diately adjacent thereto, wherein a massive spill of
oil or other hazardous substances would directly affect
the navigable waters. For the purpose of the development
of regional contingency plans the Nation's waters are
divided into hydrologically oriented regions correspond-
ing to FWPCA regional outlines. Such regions may be
further subdivided into areas by the regional plans if
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G. Pemfterton, Jr.
this appears desirable.
0 n - S cen e C o r d i n a t i on
Coordination and direction of Federal
pollution control efforts at the scene of a pollution
incident shall be accomplished through an On-Scene
Commander (OSC). The OSC is the single executive agent
predesignated by regional plan to coordinate and direct
such pollution control activites in each area of the
region .
(a) In the event of a spill of
oil or other hazardous substance the first
responsible Federal official on the site,
from any of the signatory agencies, shall
assume coordination of activities under the
plan until the predesignated OSC becomes
available to take charge of the operation.
(b) The OSC shall initiate and
direct Phase II operations and direct Phase
III operations as hereinafter described.
(c) The OSC shall determine
pertinent facts about a particular inci-
dent, such as the nature, amount, and
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C. Pemberton, Jr.
location of material spilled, probable
direction and time of travel of the mater-
ial, resources and installations which
may be affected and the priorities for
protecting them.
(d) The OSG shall call upon and
direct the deployment of needed resources
in accordance with the regional plan to
initiate and continue containment, counter-
measures, cleanup, restoration and disposal
functions.
(e) The OSC shall provide
necessary support activities and documen-
tation for cost recovery and enforcement
functions. (See Annex 11).
(f) In carrying out this plan,
the OSC will report to and coordinate closely
with ROT to ensure the maximum effectiveness
of the Federal effort in protecting the
natural resources and environment from pol-
lution damage.
(g) It is recognized that in some
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G. Pemberton, Jr.
cases the OSC, particularly where he is a
Coast Guard Officer, may have other func-
tions such as search and rescue, or fire
control and safety which must be performed
along with pollution control functions.
The U. S. Coast Guard is assigned the
responsibility to furnish or provide for OSC's for the
coastal and contiguous zone waters, ports and harbor's.
Great Lakes and ma,jor inland navigable waterways. The
Department of the Interior will furnish or provide for
OSC's in other areas. A major consideration in the
selection of an OSC for a particular area will be that
agency's capability and resources for on-scene coordi-
nation of pollution control activites. Each OSC and
his area of responsibility will be detailed in the
regional plans.
F e d e r a 1 Re s p on s e 0peral^onj^ - Res pon s^e^_Ph_as^e^
The actions taken to combat a pollution
incident can be separated into four relatively distinct
classes or phases. For descriptive purposes, these are
labeled as: Phase I. Discovery and Notifications 5
Phase II. Containment and Countermeasures; Phase III.
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C. Pemberton, Jr.
Cleanup, Restoration, and Disposal; and Phase IV. Re-
covery of Damages and Enforcement. It must be recognizec
that elements of any one phase may take place concurrent
ly with one or more other phases. The following is a
discussion of these phases:
Phase I - Discovery and Notification are
the first response actions to a pollution incident.
Discovery of an incident may be through deliberate
discovery procedures such as vessel patrols, aircraft
searches or similar procedures or through random dis-
covery by the incidental observations of government
agencies, private agencies or the general public.
In the event of deliberate dis< :>very, the
incident would be reported directly to ROC and approprial
action, as detailed in the Regional Plan initiated.
Reports from random discovery may be intially made
through police departments, telephone operators, port
authorities, news media, etc. Regional plans should
attempt to channel such reports into ROC as promptly
as possible to facilitate prompt reaction.
The severity of the pollution incident
will determine the reporting procedure and the specific
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C. Pemberton, Jr.
persons or offices to be notified of the spill. The
severity of a spill is determined by the nature and
quantity of materials spilled, the location of the spill
and the resources adjacent to the spill area which may
be affected by it. Regional plans should consider these
factors in establishing alerting procedures, however,
JOG should be notified immediately in the event of a
spill; (a) in the coastal zone of 100,000 or more gal-
lons of heavy oil; (b) in the inland waters of 10,000
or more gallons of heavy oil; or, (c) in any waters of
other material of such nature and quantity tha-t human
health or welfare is substantially threatened.
Phase II - Containment and Counterme^asures are defensive
actions to be initiated as soon as possible after dis-
covery and notification of a pollution incident. After
the OSG determines that further Federal response actions
are needed and depending on the circumstances of a
particular incident, they may include the placing of
physical barriers to halt or slow the spread of a pol-
lutant, the emplacement or activation of booms or
barriers to protect specific installations or areas,
increase or reduction of the water discharge from
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C. Pemberton, Jr.
upstream impoundments and the employment of chemicals
and other materials to restrain the pollutant and its
effects on water related sources.
Phase III - Cleanup, Restoration and Disposal include
those actions taken to remove the pollutant from the
water such as the collection of oil through the use of
sorbents, skimmers or other collection devices, actions
taken to restore the environment to its pre-spill con-
dition such as removal and replacement of beach sand
or reseeding of a shallfish bed decimated by the toxic
effect of a pollutant, and non-polluting disposal of the
pollutants which are recovered in the cleanup and restor
tion activities.
Phase IV - Recovery of Damages and Enforcement may
include a variety of activites depending on the location
of and circumstances surrounding a particular spill.
Recovery of damages done to Federal property under
Federal law and to State or local government property
under State laws are included; however, third party
damage is not considered in this phase. Recovery of
the costs of cleanup is a part of this phase and enforce
ment activities under appropriate jurisdictions such as
a-
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C. Pemberton, Jr.
the Oil Pollution Act of 1924, the Refuse Act of 1899,
and State and local statutes and ordinances are also
included. The collection of scientific and technical
information of value to the scientific community as a
basis for research and development activities and for
the enhancement of our understanding of the environment
may also be considered in this phase. It must be recog-
nized that the collection of samples and necessary
data must be performed at the proper time during the
pollution incident for enforcement and other purposes.
Procedures to be Followed for the
Purpose of Water Pollution Control
The agency furnishing the OSC for a
particular area is assigned responsibility to undertake
and implement Phase I activities in that area. Other
signatory agencies should fold Phase I activities into
their on-going programs whenever practicable. Upon
receipt of information--either from directed or random
discovery activities—that a pollution spill has occurre
the OSC for the affected area and ROT shall be notified.
ROT shall consider the facts and may declare that a
pollution incident has occurred. Information on the
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C. Pemberton, Jr.
incident shall then be transmitted through the ROC to
the OSC, JOG and Federal, State and local agencies in
accordance with the Regional Contingency Plan.
The OSC is assigned responsibility for
the initiation of Phase II actions. Continuing water
pollution control techniques must receive the concurrent
of the DOI representative on ROT. Continuing water
pollution control techniques employed by OSC in Phase II
which may cause or contribute the dangerous navigational
situations, affect the public health or safety, or
national security must be concurred in by the repre-
sentative on ROT of the agency having concomitant
jurisdiction.
The OSC is assigned responsibility for
the conduct of Phase III activities, utilizing techni-
ques concurred in by the DOI representative on ROT.
Phase III activities which may cause or contribute to
dangerous navigational situations, affect the public
health or safety, or Hational Security must receive the
concurrence of the representative on ROT of the agency
having concomitant jurisdiction.
Phase IV activities shall be carried out
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G. Pemberton, Jr.
by the individual agencies in accordance with existing
statutes, with such assistance as is needed from other
signatory agencies.
Additional Procedures Applicable
to Certain Pollution Incidents
Delegation of authority or concurrence in
proposed or continuing water pollution control activitie
may be either verbal or written by the DOI representa-
tive on ROT.
In the event that a potential pollution
source moves from the area covered by one contingency
plan into another the authority to initiate pollution
control actions shall shift with the potential source.
In the event that a pollution incident affects areas
covered by two or more regional plans, the response
mechanism called for by both plans shall be activated,
however, pollution control actions shall be fully
coordinated as detailed in the regional plans.
With regard to federally owned or operate
vessels or other facilities, in any geographical area,
the initial actions under the Reaction Phases, described
elsewhere in this report, will be taken by that departme it
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C. Pemberton, Jr.
or agency owning or responsible for operation of the
vessel or facility. Continuing water pollution control
actions taken under Phases II and III must be concurred
in by the DOI representative on the appropriate ROT.
In the event of a nuclear pollution
incident the procedures of the Interagency Radiological
Assistance Plan shall apply.
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ANNEX I
I - 1
This plan is an agreement entered into by the heads of the agencies
listed below. Any signatory agency may withdraw from the agreement
on 30 days notice to each of the other agencies.
The Plan may be modified through procedures described in the plan with
the written consent of the Secretaries of the Interior, Transportation,
Defense, Health, Education and Welfare, and the Director, Office of
Emergency Planning.
Annexes to the plan, detailing procedures for executing the Plan, may
be modified by the representatives to the National Interagency Committee
with the approval of the Secretary of the Interior.
Regional Plans may be modified by the D
the concurrence of the agencies affect
art
tncnt of the IntsjrLor with
such changes. "
1. U. S. Department of the Interior _
I /Secretary
•/// ' C
2. U. S. Department of Transportation / V / Cu- '-J I'
Secretary
3. U. S. Department of Defense ClO ifr
m^^*^ m a-««
4. U. S. Department of He a 1th,
Education, and Welfare
5. Office of Emergency Planning
Uirecwr
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C. Pemberton, Jr.
ANNEX II
DISTRIBUTION OF PLAN
For the most effective operation of the
plan, coordination with and the cooperation of many
Federal, State, interstate, and local agencies will be
necessary. To this end, the following agencies will be
included in the distribution and other information
relevant to the operation of this Plan:
1. The agencies signatory to this plan
and the offices designated within their agencies. These
include:
(a) All FWPCA Regional Offices;
(b) All Coast Guard District Commanders;
(c) All USPHS Regional Health Directors;
(d) Department of Defense, and
(i) All Corps of Engineers District
and Division Engineers
(ii) All U. S. Navy District Commanders
(iii) All Continental Army Commands
(e) Office of Emergency Planning Regional
Directors .
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G. Pemberton, Jr.
2. All State water pollution control
agencies.
3. All interstate water pollution contro
agencies.
4. The Department of Justice.
Formal distribution of the plan and other
relevant information will be handled by the U. S. Depart
ment of the Interior, Federal Water Pollution Control
Administration. Informal distribution to others not
listed above may be handled by the Department or agency
concerned.
Tabulations of the agencies receiving
the distribution are attached.
ANNEX III
A SUMMARY OF LEGAL CAPABILITIES AVAILABLE
TO THE UNITED STATES TO CONTROL OIL POLLUTION
I- Oil Pollution Act, 1924, as amended,
(33 U.S.C. 431 et. seq.) now makes unlawful, with some
exceptions, the grossly negligent or willful discharge
of oil into the navigable waters and adjoining shoreline
of the United States from a vessel. This prohibition
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G. Pemberton, Jr.
applies to foreign and domestic vessels within our
territorial sea and navigable inland waters. The Act
establishes both civil and criminal sanctions for vio-
lations. The exceptions are cases of emergencies
imperiling life or property, and unavoidable accidents,
collisions, or strandings, and those cases where dis-
charges are permitted by regulation. The Act authorizes
the Secretary of the Interior to issue regulations which
Permit the discharge of oil from boats or
vessels in such quantities, under such conditions, and
at such times and places as in his opinion will not be
deleterious to health or marine life or a menace to
navigation, or dangerous to persons or property engaged
in commerce on navigable waters of the United States;
and
Relate to the removal or cost of removal
or both, of oil from the navigable waters of the United
States, and adjoining shorelines of the United States.
The Act further provides for a coordinatec,
action program by allowing the Secretary of the Interior
to make use of the organization, equipment and agencies
of the Coast Guard and Army with the consent of the
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C. Pemberton, Jr.
Commandant and Secretary, respectively. The 1966 amend-
ment to the Act inserted reference to persons employed
under authority of the Secretary of the Army for the
better enforcement of the Act.
II. An act to authorize Federal assistande
to State and local governments in major disastejr an_d for
other purposes (42 U.S.C. 1855 et. seq.). By Executive
Order 104-27, dated January 16, 1953, the President has
delegated administration of the Federal disaster assistan
program under Public Law 81-875, cited above, to the
Director, Office of Emergency Planning. This includes
the authority to coordinate and direct the disaster
relief activities of all Federal agencies during a major
disaster and when a major disaster is declared by the
President, and to administer disaster relief funds made
available by dongressional appropriation to the President
The Disaster Relief Act of 1966, Public Law 89-769, re-
affirmed the Office of Emergency Planning1s role in
planning and directing Federal disaster assistance
activities.
In a disaster of major proportions, the
Office of Emergency Planning will make damage assessment
ce
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G. Pemberton, Jr.
through such agencies as the Corps of Engineers, Bureau
of Public Roads, Department of Health, Education, and
Welfare, and the Department of Housing and Urban Develop
ment.
After the President declares a major
disaster, the Office of Emergency Planning may direct
any Federal agency to provide assistance to:
Utilize or lend, with or without
compensation, to State and local government,
equipment, supplies, facilities, personnel,
and resources other than extension of
credit under the authority of any Act.
Distribute, through the American
National Red Cross or otherwise, medicine,
food and other consumable supplies.
Donate or lend to States, for their
use or distribution surplus equipment and
supplies .
Perform, on public or private
lands, protective and other work to preserve
life and property.
Provide temporary housing or
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C. Pemberton, Jr.
emergency shelter.
Clear debris and wreckage, and
make emergency repairs and temporary
replacement of essential public facilities,
such as roads, bridges, water and sewer
systems, public buildings, of State and
local governments.
The Office of Emergency Planning may
render financial assistance to:
State and local governments for
work to protect life and property, to
clear debris and wreckage, and to make
emergency repairs to and temporary replace-
ments of essential public facilities of
State and local governments, including
provisions for temporary housing or emer-
gency shelter.
Federal agencies as reimbursement
for disaster relief assistance directed by
the Office of Emergency Planning.
Statutory and Legal Authorities pursuant
to which OEP operates are:
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C. Pemberton, Jr.
Public Law 81-875 (42 U.S.C.
I855~l855g). Executive Order Nos.
10427 and 10737, as amended, Parts 1709
and 1710 of Title 32 of the Code of
Federal Regulations (32 G.F.R. Part 1709,
1710.)
Section 12 of Public Law 89-769
(42 U.S.C. I855hh).
The Department of Defense cites the basic
law, 42 U.S.C. l855-l855gj as its principal authority
in responding to civil assistance situations upon the
determination by the President that disaster assistance
is warranted and a governor's certification of need for
such assistance.
III. The Rivers and Harbors Act, also
cited as The Refuse Act of__l8.99, (33 U.S.C. 407) is
administered by the Corps of Engineers and applies to
both vessels and shore-based facilities with respect to
almost every type of discharge to a navigable water
except that flowing from streets and sewers. A 1965
judicial ruling construed the Act to include the dis-
charge of commercially valuable gasoline.
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C. Pemberton, Jr.
The Corps of Engineers also participates
in oil pollution incidents in accordance with the pro-
visions of Public Law 81-875, as amended (42 U.S.C. 1855
known as the Federal Disaster Relief Act, described abov<
The Corps of Engineers can perform work
for other Federal agencies. This authority is contained
in Section 219 of "the Flood Control Act of 1965, Public
Law 89-298, which states, "The Chief of Engineers,
under the supervision of the Secretary of the Army, is
authorized to accept orders from other Federal depart-
ments and agencies for work or services and to perform
all or any part of such work or services by contract."
IV • Legal Authorities Under Which the
U. S. Coast Guard Operates Relating to Water Pollution
Control May be Summarized as Follows^:
A. Primary Duties
The Coast Guard shall enforce or
assist in the enforcement of all applicable
Federal laws upon the high seas and waters
subject to the jurisdiction of the United
States; shall administer laws and promulgate
and enforce regulations for the promotion
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G. Pemberton, Jr.
of safety of life and property on the high
seas and waters subject to the juris-diction
of the United States covering all matters
not specifically delegated by law to some
other executive department; shall develop,
establish, maintain and operate, with due
regard to the requirements of national
defense, aids to maritime navigation, ice
breaking facilities, and rescue facilities
for the promotion of safety on and over the
high seas and waters subject to the juris-
diction of the United States, and shall
maintain a state of readiness to function as
a specialized service in time of war.
(14 U.S.C. 2).
B• Functions and Activities
Relating to Water Pollution
Co_nt_r_o_l_.
1. Saving of life and pro-
tecting the property
(14 U.S.C. 88).
2. Providing aids to maritime
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C. Pemberton, Jr.
and air navigation
(14 U.S.C. 8l).
3. Providing for the safety
of naval vessels
(14 U.S.C. 91).
4. Administering the Merchant
Marine Safety Program
(Title 46 U.S.C.)
5. Operating an effective
port security and safety
program (50 U.S.C. 191 and
Executive Order 10173, as
amended).
6. Enforcing or assisting in
the enforcement of Federal
laws on the high seas or
waters subject to the Juris-
diction of the United States,
for example:
a. Oil Pollution Act 1961
(33 U.S.C. 1001)
b. Refuse Act of 1899
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C. Pemberton, Jr.
(33 U.S.C. 403 et. seq.)
c. Oil Pollution Act of 1924,
as amended (33 U.S.C. 431
et.seq.)
d. "Dangerous Cargo Act
(46 U.S.C. 171)" activi-
ties now covered by 18
u.s.c. 278 (46 u.s.c. 171,
as such, has been repealed.)
7- Administering the Tank Vessel
Act (46 U.S.C. 391a)
v• The Federal Water Pollution Control
Act, as amended, (33 U.S.C. 466, et.seq.). The Secretary
of the Interior Administers the Federal Water Pollution
Control Act, as amended, through the Federal Water Pol-
lution Control Administration.
The Act has as its stated policy "to
enhance the quality and value of our water resources,
and to establish a national policy for the prevention,
control and abatement of water pollution."
Under section (5)(b) of the Act, the
Federal Water Pollution Control Administration may
participate in an oil or other hazardous materials
pollution incident and make recommendations for the
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G. Pemberton, Jr.
solution of the problem, at the request of a State or
interstate water pollution control agency. Section (5)
(b) states:
"The Secretary may, upon request
of any State water pollution control agency,
or interstate agency, conduct investiga-
tions and research and surveys concerning
any specific problem of water pollution con-
fronting any State, interstate agency,
community, municipality, or industrial
plant, with a view of recommending a solu-
tion of such problem."
The Federal Water Pollution Control Ad-
ministration may also provide technical assistance to
public and private agencies under section (5)(a) of the
Act. This section states:
"The Secretary shall conduct in
the Department of the Interior and encourage,
cooperate with, and render assistance to
other appropriate public (whether Federal,
State, interstate, or local) authorities,
agencies, and institutions, private agencies
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C. Pemberton, Jr.
and institutions, and individuals in the
conduct of, and promote the coordination of,
research, investigations, experiments,
demonstrations, and studies, relating to
the causes, control, and prevention of
water pollution."
Under the enforcement provisions of the
Act it is stated in section 10 (a):
"The pollution of interstate
or navigable waters in or adjacent to any
State or States (whether the matter causing
or contributing to such pollution is dis-
charged directly into such waters or
after discharge into a tributary of such
waters), which endangers the health or
welfare of any persons, shall be subject
to abatement as provided in this Act."
In enforcement actions held under the pro'
cedures described in section 10, the Secretary, where
appropriate, may make recommendations for limits on
various pollutants, including oil and other hazardous
materials. If effective progress toward abatement of
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G. Pemberton, Jr.
the pollution is not made in these enforcement actions,
more stringent enforcement measures may be taken under
the Act.
Water quality standards, as provided in
section 10 of the Act, where appropriate, have included
oil and other hazardous materials. The Act provides
for enforcement procedures to insure compliance with the
water quality standards.
The Outer Continental Shelf Lands
Act (43 U.S.C. 1331-1343)> authorizes the Secretary of
Interior to require the prevention of pollution in
offshore oil or mining operations. In the implementa-
tion of this Act, a requirement for compliance with
antipollution regulations could "be made a condition of
any lease, with failure to comply making the lease
revocable .
ANNEX IV
NATIONAL INTERAGENCY COMMITTEE (NIC)
1. Purpose
The purpose of the National Interagency
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C. Pemberton, Jr.
Committee (NIC) is to provide an advisory body to insure
the viability of the operating program of the Federal
Government to deal with spills of oil and other hazardou
substances.
2. Objectives
a. To review the National and
regional plans periodically for adequacy
and effectiveness, and to recommend
changes to these plans as necessary.
b. To review major and catas-
trophic pollution incidents with a view
to improving the plans and to make such
recommendations to the signatory agencies
as indicated and appropriate.
c. To encourage joint demonstra-
tions, projects and exercises of forces of
signatory agencies.
d. To review exercise reports
and to submit an annual report to the signa-
tory agencies concerning the readiness of
the Kational and regional plans and forces
to cope with a major or catastrophic water
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C. Pemberton, Jr.
pollution incident.
3. Composition
a. The representative of DOI
shall serve as chairman of the Committee,
and the representative of DOT as vice-
chairman.
ID. Membership shall be comprised
of representatives of the Federal agencies
having statutory responsibilities pertain-
ing directly to water pollution or its
effects. The original membership shall be
comprised of the following agencies:
Department of the Interior
Department of Transportation
Department of Defense
Office of Emergency Planning
Department of Health, Education,
and Welfare
c. Provisions are made for observers
and consultants on a nonreimbursable basis
from other Federal, State or local agencies
and industry as circumstances warrant. The
objective of maintaining a broadly-based
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C. Pemberton, Jr.
organization and response is in consonance
with the legislation on oil and hazardous
pollution.
ANNEX V
JOINT OPERATIONS CENTER
1. The National Joint Operations Center
(JOG) for Oil and Hazardous Materials Water Pollution
Incidents is established at United States Coast Guard
Headquarters, Washington, D. C. (20591) in Room 7133-
2 . P_u r P_o_s_e_
The purpose of the JOG is to provide an
effective physical means for coordination and control of
an incident should National level involvement be required
3. Activation
a. The JOG may be activated by
any interested agency through its repre-
sentative member of the JOT.
b. Activation may take place
immediately upon receipt of information of
a major water pollution incident.
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C. Pemberton, Jr.
c. Immediate notification of
activation to participating agencies will
be made by appropriate means using the
words "JOG Activated at (dateand time] z"
(Greenwich Mean Time or Zulu Time).
^• Re spon s i billti e s
a. The Commandant, U. S. Coast
Guard will provide the necessary communica-
tions and plotting facilities and equipment.
This will include:
(1) Telephone branch lines
(2) Teletype circuits
(3) Adequate charts of U. S. navigable
waters, the continental shelf and
the ocean areas adjacent to U. S.
territorial waters.
(4) Technical library on oil and
hazardous materials pollution.
(5) Plotting and display provisions to
visually depict the geographic
position, movement and extent of
the pollutant.
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C. Pemberton, Jr.
t> . Signatory agencies will
furnish competent representatives to
man the JOG as required and furnish
appropriate technical manuals and
materials and such administrative sup-
port as required.
C. The Coast Guard Duty Offi-
cer, pursuant to his standing instructions,
will provide initial notification of a
pollution incident to the Coast Guard
member who is the Executive Secretary who
will subsequently notify the members of
JOT.
5 . Communi cat ions Servi ces Ava j
a. Telephone (voice)
(1) AUTOVON (Automated Voice
Network) - general purpose
switched voice network of
Defense Communications System.
Serves CONUS, Alaska, Europe,
Pacific and Panama.
(2) Washington Tactical Switchboard
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C. Pemberton, Jr.
Pentagon terminal of the
tactical telephone system,
operated by USAF.
(3) FTS - GSA operated government
administrative telephone system.
(4) SARTEL - SAR COMMAND COORDINATION
telephone network. Leased HOTLINE
telephone net extending from
Halifax to New Orleans.
b. Teletype
(1) AUTOVON. A defense communications
worldwide. High speed user data
communications system operated for
and managed by the DCA to provide
both direct user to user and store
and forward message switching service
for DOD and other government agencies.
(2) SARLANT - Coast Guard leased
teletype system extending from
Massachusetts to Texas and Mis-
souri and Ohio. Used to control
and coordinate SAR incidents under
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C. Pemberton, Jr.
CEA and handles other operational
traffic and priority administra-
tive communications.
(3) SARPAC - Same as (2) for the West
Coast U. S.
(4) TWX - Teletypewriter exchange
service links 50,000 CONUS indus-
try and government offices. Also
has overseas capability.
6. Weather _. Inf_or ma t_i on_
a. Telephone (voice) with the
Weather Bureau for domestic and oceanic
weather and forecasted conditions.
7 . 0_c_e_an__G_o_nd_i_ti_o_ns_
a. Telephone and teletype connec-
tions to the Commander, Eastern area for
ocean surface conditions and forecasted con-
ditions .
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G. Pemberton, Jr.
ANNEX VI
REGIONAL OPERATIONS CENTERS
(Listing of Regional Operations Centers
will be inserted after designation in the Regional plans
ANNEX VII
SHIP SALVAGE AUTHORITY OF THE U. S. NAVY
AS RELATED TO OIL SPILL EMERGENCIES
As set forth in Public Law 513 (80th
Congress, 2nd Session, 10 USC 73ol, et. seq.), the
Secretary of the Navy is authorized to provide, by
contract or otherwise, necessary salvage facilities
for both public and private vessels upon such terms
and conditions as he may, in his discretion, determine
to be in the best interests of the United States. In
addition to the responsibilities which the Navy would
assume in applying salvage techniques to cope with a
potential pollution problem involving a U. S. Navy
vessel, Public Law 80-513 authorizes the use of Navy
facilities for salving public and private vessels at
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C. Pemberton, Jr.
the request of competent authority. The following
examples are used to illustrate the responsiveness of
Navy salvage forces to pollution incidents and to further
delineate the relationships whereby Navy salvage forces
would respond to assist other "competent authorities" in
coping with potential pollution problems:
( a ) U _. __ §.^_N a v_y _s_h_^p__ag r p_u_n_d_ :
p o 1 lu t
The Navy would acknowledge total responsi-
bility for the operation. Acting in accordance
with promulgated Naval directives, Navy
salvage forces would automatically respond
to cope with the salvage aspects of the
problem. The Navy would seek USCG and
FWPGA assistance to deal with a pollution
threat which might exist during salvage
efforts or which might develop should
initial salvage efforts prove unsuccessful.
As provided for in Naval directives pro-
mulgated in response to Public Law 80-513*
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C. Pemberton, Jr.
the Navy may, subject to the availability
of forces, respond to a request from com-
petent authority for salvage assistance
to save the ship and cargo. Provided it
has not been abandoned, arrested, or in
some manner come under Governmental con-
trol, competent authority in the case of a
merchant vessel will ordinarily be the ship's
master, owner, agent, or authorized under-
writer's representative. In such cases,
the customer is the ship's master, owner,
agent or underwriter and the Navy provides
salvage services that are governed by the
appropriate Naval directives. Due regard
must, however, be given to the existence
locally, or the reasonable availability, of
privately owned salvage facilities.
On the other hand, if a competent Govern-
mental agency, such as the USGG, FWPGA, Corps of Enginee
Office of Emergency Planning, or a Federal court has
stepped into the case, and, acting in the public interes
to prevent or minimize pollution, requests Navy salvage
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C. Pemberton, Jr.
assistance as an evolution of the oil pollution control
operation, and acknowledge that it is the "customer,"
Navy salvage assistance may be provided in consonance
with the provisions of Public Law 80-513- In such cases
the operation will be considered to be one of cross-
servicing within the government and the existence of
local salvage capability may be considered subordinated
thereto.
If the ship has been abandoned it may b«
expected that some agency of the local, State or Federal
government will have assumed at least interim possession
and will be in a position to act as competent authority
to request salvage, and act as "customer." In such a
case, the operation will again be considered as one of
cross-servicing and it may proceed as above. Similarly,
if the ship has been arrested, the salvage assistance
will be governed by the directions of the competent cour
( c ) Wr_e_c^k ed. _v_es^s e 1 of any flag
b^^k^g_a_U_L_SJ__Te_rrito^ry navigation
ch_ann_el_. Under the Rivers and Harbors
Act of 1889, the Army Corps of Engineers
has the responsibility for wreck removal
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C. Pemberton, Jr.
and can exercise this authority,, if
necessary, prior to abandonment of the
Vessel by the owners and underwriters.
Accordingly, Naval salvage forces may
respond to a request for salvage assistance
from the Corps of Engineers which would
act as the competent authority and "cus-
tomer" in such a case.
Even though the Corps of Engineers can
deal with the Navy or with commercial salvors for wreck
removal as noted above, it does not have removal authorit
solely for the purposes of minimizing leakage of oil or
potential oil leakage. Antipollution action must be
taken by the USCG or the FWPCA.
(d) Wrecked vessel of any fjla.g
in navigable waters^: po 1 lution threat to_
U. S_. T e_r r it or i a 1 w at e r s ; n o t _b_l o c k i n g _a
channel. Although current legislation is
imprecise in defining a territorial separa-
tion or overlap in the area responsibilities
of the USCG and the FWPCA^ both organizations
have broad authorities (in effect and
y
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C. Pemberton, Jr.
pending) under the provisions of the
Federal Water Pollutjon Control Act and
the Oil Pollution Act of 1924 to prevent,
control and correct the effects of oil
pollution. Accordingly, it is the policy
of the Navy to respond to requests for
assistance from either of these organiza-
tions to provide salvage assistance in
dealing with potential or actual oil pol-
lution incidents.
ANNEX VIII
COMMUNICATIONS AND REPORTS
Purpose
The communications concerning a major
oil or hazardous material spill are an integral and sig-
nificant part of the operations. The same precepts goverjn
in these instances as do other operations in which the
Coast Guard and other operating agencies are involved.
Objectives
(a) To speed the flow of information
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G. Pemberton, Jr.
pertaining to an incident.
(b) To relay advice, instructions
and reports pertaining to an
incident.
(c) To provide for alerting,
notification, surveillance
and warning of a pollution
incident.
Procedures
(a) Normal communications circuits
of each signatory agency may be
used to effectuate this plan.
The national and district or
regional offices and telephone
numbers of primary alerting and
notification offices of interested
agencies will be maintained in
JOG and as appropriate in ROC.
(b) The initial reporting of a pol-
lution incident will be in
accordance with the information
and format as described in the
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C. Pemberton, Jr.
regional plans.
(c) SITREPS (Situation Reports)
will be forwarded by the OSG
to his operational commander,
with ROC, or JOG, or both, as
appropriate, as informational
addresses.
1. Such reports will be sub-
mitted in a timely manner
as developments occur and
at 0800 and 2000 local time
on each day of the opera-
tion .
2. Participating agencies will
be kept advised of the infor-
mation contained in such
reports through their
representatives on the JOT
or ROT, as applicable.
Reports
At the conclusion of Federal activity
resulting from a pollution incident, any OSC involved
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C. Pemberton, Jr.
will submit a complete report of the incident and the
actions taken, pursuant to applicable directives of his
own agency. Copies will be furnished to the JOT or ROT,
as appropriate, for submission to the NIC, together with
any other pertinent information available to the forward
ing group. The NIC will then evaluate each incident and
will make appropriate recommendations as provided in
Annex IV.
ANNEX IX
STATE AND LOCAL GOVERNMENT AND PRIVATE INTERESTS
Under this plan, private, State, local
and Federal responses to pollution incidents will be
fully coordinated to achieve the most effective pattern
of response. Additionally, this plan encourages the
development of State and local government capabilities
and private capabilities to handle such pollution inci-
dents .
To accomplish both the development of
capabilities and coordination of responses, the State
and local agencies having response and resource capabili
ties are encouraged to participate in the regional
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G. Pemberton, Jr.
planning necessary to accomplish the objectives of this
plan. The formation of State and local action teams to
develop and participate in programs designed to handle
pollution incidents appears desirable, and the agencies
signatory to this plan will encourage and assist in the
establishment of such teams and local alerting systems
for pollution incidents. Additionally, the purchase of
appropriate equipment and materials by States, localitie
and private interests for use in pollution incidents is
suggested.
The States and local agencies have primar
responsibility to enforce their own laws and regulations
relating to pollution incidents. Phase IV activities
under this plan, will be performed so as to accommodate,
whenever possible, State and/or local requirements for
enforcement of their laws.
The Governor of a State has the responsi-
bility to ask for the declaration of a Major Disaster,
whenever appropriate. The regional plans will assist in
such instances by providing an orderly Federal-State-
local response to a pollution incident.
In accordance with the established Federa
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C. Pemberton, Jr.
policy for oil pollution incidents, the person responsib:
for the discharge of oil or other hazardous substances
causing pollution will be encouraged to remove the pol-
lutant or adequately mitigate its effects. If the persoi
responsible does not act promptly or does not propose to
take necessary and appropriate action, as concurred in
by the DOI representative on ROT, to contain, clean up
and dispose of pollutants, or the discharger is unknown,
further Federal response actions as described in the plar
may be instituted. When such person is taking adequate
action, Federal activities will consist primarily of
observing and monitoring progress, and providing whatevei
advice and counsel may be necessary.
The specific details concerning State,
local and private jnvolvement in response operations for
pollution incidents will be spelled out in the regional
plans.
ANNEX X
FUNDING
The central thrust of this plan and
existing statutes is that the cost of containment,
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C. Pemberton, Jr.
countermeasures and cleanup with respect to spills of
oil or other hazardous materials shall be borne by the
person (as defined by the Oil Pollution Act of 1924)
permitting or causing the spill.
Actions undertaken by the agencies signa-
tory to this plan in response to pollution emergencies
shall be carried out under existing programs so far as
practicable. It is recognized, however, that the sepa-
rate agencies have funds available specifically for
dealing with pollution and related incidents.
Although it is not envisioned that spe-
cific reimbursement agreements between Federal agencies
will be needed to insure that the Federal resources will
be available for a timely response to a pollution emer-
gency, this plan does not preclude such agreements.
Th e _Departmen t of t h_e _In t^e r i_q_r has made
available, through administrative direction within FWPCA
$10,000 per region for expenditure on cleanup operations
The^Uj. __ §_. __ 5.oast__Guar_d pollution control
efforts are funded under "Operating Expenses."
The_ De partment _of ^De_fer\s_e_. In addition
to having statutory responsibility to provide assistance
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915
C. Pemberton, Jr.
in the event of a declared disaster has two specific
sources of funds. These are:
1. Funds required for removal
of a sunken vessel or similar obstruction
to navigation are available to the Corps
of Engineers through Civil Functions
Appropriations, Operations and Maintenance,
General.
2. The U. S. Navy has funds
available through its salvage operations.
Off ice of Erne rgency Planning. In making
a declaration of a major disaster for a stricken area,
the President may allocate funds from his Disaster
Relief Fund. The allocated funds are administered by
the Director, Office of Emergency Planning. The Directo
may authorize reimbursement to other Federal agencies fo
disaster assistance directed by the Office of Emergency
Planning. Applicable policies and procedures are stated
in Title 32, Chapter XVII, Part 1709 "Reimbursement of
Other Federal Agencies Performing Major Disaster Relief
Functions . "
The Director may make financial assistanc
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C. Pe^berton, Jr.
available to State governments and through the States
to local governments in accordance with policies and
procedures stated in Title 32, Chapter XVII, Part 1710
Federal Disaster Assistance.
ANNEX XI
PROCEDURES FOR REPORTING INFORMATION AND COLLECTING
SAMPLES IN PHASE IV OPERATIONS
(Recovery of Damages and Enforcement)
The OSC in charge at the scene of a pol-
lution incident may be from any one of several agencies.
Therefore, it is necessary to establish uniform proce-
dures for notification of counsel, collection of samples
and information consistent with the several phase opera-
tions in Federal response situations. Necessary informa
tion and sample collection must be performed at the
proper times during the Federal involvement in a pollu-
tion incident for the purpose of later use in cleanup
cost recovery, damage recovery, and civil and criminal
enforcement actions, under appropriate Federal statutes.
Thus, during the phase operations of discovery and
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G. Pemberton, Jr.
notification, containment and counter-measures, and
cleanup, restoration and disposal, the OSG must take
the necessary action to put counsel on notice of the
event and to ensure that information, records and
samples adequate for legal purposes are obtained and
safeguarded for future use.
Notification of_ Gouns e 1
A. Imme di ate _Te 1ephon e__No t>i c e
Immediately upon notice of the
discovery of a pollution incident,
the ROT and JOT members shall notify
their respective regional and depart-
mental attorneys, as provided herein
and as detailed in the regional plan.
Legal notice to the ship operator
and owner indicating Federal interest
and action in an incident shall be
prepared and sent, using Form No.
FWPCA 207(7-68), shown on page XI-7,
this annex. Counsel will advise
regarding specific changes or citations
to be added to this notice.
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C. Pemberton, Jr.
Immediate coordination of
counsel of the Department of the
Interior, Corps of Engineers and
the Coast Guard, at the Washington,
D. C., level and the regional level,
will be effected for joint and
several actions concerning sending of
notices, advices regarding the hand-
ling of evidence, preparation of
evidentiary statements, and referral
of the matter to the Justice Depart-
ment or the appropriate U. S. Attorney.
B• Transmittal to Counsel of Reports and
E v i_d e_n t ijar y_ JMat e r ial. s_
The information and reports
obtained by the OSC are to be trans-
mitted directly to the ROT. The repre-
sentative of the agency on ROT having
cost recovery or enforcement authority
will then refer copies of the pollution
reports to his respective departmental
couns el.
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C. Pemberton, Jr.
Investigation^Collection._of Samples and Reporting
Samples collected are to be transmitted,
using procedures detailed below, to the laboratory
designated in the regional plan for analysis. Reports
of laboratory analyses will be forwarded to the appro-
priate ROT for transmittal to counsel. The Chairman,
ROT, will also forward copies of laboratory reports to
JOT.' Procedures for handling of samples and records
are described below.
A. Action to be taken by OSC for Phase IV
Activ_i_ti£s__in._Con^unct ion. wij^Actions
in Phase I, II and III
(1) Investigate observed instances
of oil or other hazardous materials
pollution in the waters covered by
the scope of this plan.
(2) Collect samples of oil or hazardous
materials from the water and from
appropriate spaces of the suspected
offending vessel or vessels, shore
establishments, or other sources,
when investigation discloses a
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C. Pemberton, Jr.
reasonable basis to believe a
violation has occurred. (See
B, below)
(3) Prepare Oil Pollution Incident
Report (Form No. FWPCA 209,
(7-68) shown on page 931.)
together with additional documents
or attachments, if any.
(4) Transmit the original and one
copy of Form No. FWPCA 209
(7-68) and attachments to the
appropriate ROT Chairman at ROC.
A copy of the form and attachments
are to be forwarded to the Chair-
man JOT. Samples are to be sent
directly to the laboratories desig-
nated in the regional plans.
(5) Such material should be mailed by
air mail (wherever possible),
special delivery, registered-return
receipt requested. Reports sent
from the laboratories to the
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C. Pemberton, Jr.
Chairman ROT should also be
mailed in this manner.
(6) Chain of Custody: It is important
that a chain of custody of the
samples be properly maintained
and recorded from the time the
samples are taken until ultimate
use at the trial of the case. In
this regard, a record of time, place,
and the name and title of the
person taking the sample, and
each person handling same there-
after must be maintained and for-
warded with the sample, using the
Form No. FWPCA 208 (7-68) shown on
page 930-
(7) If in any doubt as to whether or
not any particular occurrence may
be an oil pollution or hazardous
materials pollution violation case,
or in any doubt as to how to pro-
ceed in any given case, contact the
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C. Pemberton, Jr.
ROT for instructions and advice.
If, however, time is a critical
factor and/or the ROT has not yet
assembled, proceed as if the inci-
dent were a pollution violation.
B. Sj-mp; 1 e _Co 1.1 e_c_t ion_ _P r o c_e_d u re_s_
to be followed by OSC in Phase IV Activities.
(1) Several precautions must be observed
when taking and handling liquid
samples for analyses as the charac-
ter of the sample may be affected
by a number of common conditions.
These precautions concern:
a. The composition of the container;
b. Cleanliness of the container;
c. Manner in which the sample is
taken; and
d. Time elapsed between sampling
and analysis.
(2) In taking such samples, the following
procedures are to be followed in all
cases :
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C. Pemberton, Jr.
a. Glass containers of one quart
size are to be used. The
portion of the cap or cap
liner which may come into
contact with the sample in
the container is to be made of
glass, aluminum foil, or
teflon.
b. Previously unused containers
are preferred. Containers that
have been cleaned with a strong
detergent, thoroughly rinsed
and dried may be used.
c. Samples must be properly labeled.
d. Consultation: Consult with the
analysis laboratory personnel
relative to special samples and
unusual problems. In this regard,
Department of Interior labora-
tories will advise on procedures
and unusual sampling problems.
Inquiries may be made or addressed
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C. Pemberton, Jr.
to the appropriate DOI
laboratory in the area.
Locations of DOI labora-
tories are given in the
regional plans.
e. Some explanatory" notes covering
the above procedures:
Glass containers always must be used
because plastic containers, with the exception
of teflon have been found in some cases to
absorb organic materials from water. In other
cases compounds have been dissolved from plastic
containers. This comment also applies to bottle
cap liners.
It is sometimes difficult for a chemist
to analyze the impurity. Therefore, it is
desirable to take as large a sample of the pol-
lutant as possible. Proper skimming techniques
should be used to obtain a sufficient amount of
oil for analysis.
When water is polluted, it is not
unusual for the pollution condition to change
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G. Pemberton, Jr.
rapidly. Samples should be taken in a
timely fashion, and the time sequences
and place appropriately noted.
OIL POLLUTION INCIDENT REPORT
A. The following information, where
appropriate, for each pollution incident, should be
obtained by the OSC and reported, pursuant to the instru
tions above and paragraph B below. Form No. FWPCA 209
(7-68), to facilitate recording and processing this
information, will be supplied to the OSC by the FWPCA.
This form appears on page 931 .
B • In s^t r u c t ^on sL_f o r _p r ep a r a, t i.on _o_ f JF o rm
FWPCA 209 (7-68)
(1) The OSC shall designate an
identification number, in consecutive order,
to each case. This case number should be
placed at the top right hand corner of the
form. The same number should also be placed
on the cap of each sample obtained, as well
as on the "chain of custody" tag or label
affixed to each sample. Each regional area
will be assigned a distinguishing letter code
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G. Pemberton, Jr.
which will precede the case number. The
ROT shall assign an appropriate identifi-
cation number for each case and will inform
the OSC of the assigned number.
(2) At least four copies of this
form are to be prepared for forwarding. The
original and one copy are to be transmitted
to the Chairman of the appropriate ROT. One
copy is to be transmitted to JOT. A copy
is also to be transmitted to the supervisory
headquarters authority of the OSC.
(3) Section III, Pollution Data.
It is not always possible to obtain signed
statements from persons directly concerned
in a violation case. These signed statements
are desirable, i f reliable and obtained on
a voluntary basis. Oral statements or com-
ments made to or in the presence of the
investigating officer also should be described
in a statement by the investigating officer
and attached to the report. Reference to
such statements should be noted on this form
-------
927
C. Pemberton, Jr.
and attached as an Annex.
(4) Section IV, Samples. The
"Remarks" (item No. 31) portion of this
section need not necessarily be brief.
Include any facts, observations, or any
information that may be helpful to the
reviewing official in making a determination
as to whether or not there is sufficient
evidence for prosecution.
(5) In the space marked "first
endorsement" the OSC should indicate that
the original of this form has been for-
warded to the appropriate ROT Chairman.
The endorsement should also indicate that
samples, if any, have been forwarded to the
appropriate laboratory indicated in regional
plans. When the OSC is informed by the ROT
and the laboratory that the reports and
samples have been delivered, he will then
forward the registered mail receipts to ROT
for their files.
-------
928
U. S. DEPARTMENT OF THE INTERIOR
WATER POLLUTION CONTROL ADMINISTRATION
LEGAL NOTICE TO SHIP OWNER, OPERATOR, AND CAPTAIN
XI - 7
FROM
^0
NAME OF VESSEL
ADDITIONAL AODRE5SC' S
The United States, actir.g through the U. S. Department of the Inttnor, hereby notifies the vessel and
owners of the and its Captain,
SAVE ;- VESSE-
through the
(NA ME)
. Steamship Company local agents, of pollution
situation created by
. from the
~~ 'NAME OP" VESSE _
Oil from the ship in navigable waters.
(ACTION CAUSING POLLUTION
.on , with discharges of substantial quantities of
The United States hereby requests and demands that the vessel and its Agents forthwith contain, clean
up, and abate the oil pollution situation created by the spill or discharge of oil.
The United States hereby requests that the
Steamship Company,
acting for and in behalf of the vessel immediately report to the Federal Water Pollution Control Administration,
U. S. Department of the Interior,
(ADDRESS:
as to the immediate steps so far taken nnd the immediate steps that the vessel Captain, owners, and agents will
take to contain, clean up, and abate the oil pollution situation.
Upon failute to remo\e the oil from the navigable waters of the United Statr-. and from the adjoining rhore-
lines immediatley, the vessel owners, and its agents, the ;.viAMEi
Steamship Company are hereby notified that the Secretary of the Interior, pursuant to the provisions of the Oil
Pollution Act of 1924, as amended, will arrange to remove the oil and that the United States shall proceed to
hold the vessel and owners liable for all costs and expenses incurred and for all other damages caused the
United States.
If subject.vessel denies responsibility for the oil discharge, it is respectfully requested that this office
be advised immediately of the basis for such denial.
FOR Tt-E REGIONAL OIRCCTOR, U. S ZES*RTMENT OF THE
INT6R-CR (Stfnanirc)
FWPC>i207 (7-63) (This nonce to bo transmitted to prime addressee vii T'l.Y. Other copies nay be dispatched as
-------
929
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-------
932
G. Pemberton, Jr.
ANNEX XII
PUBLIC INFORMATION
Any significant spill of oil or other
hazardous material inevitably generates a number of
urgent requests for information from the news media.
It is important, even crucial in many situations, that
this information be provided promptly, and that the
information be fully coordinated with the agencies con-
cerned and be as complete as possible. Follow-up informs
tion should be provided to all interested media as it
becomes available.
During pollution emergency operations,
the JOG will act as the focal point for national public
information releases and for information transfer
between the OSC and the Washington, D. G., headquarters
of the agencies concerned.
During Federal response operations, the
ROT will be responsible for coordinating the interagency
information releases at the regional operations level.
This will be accomplished by furnishing the news media
with information regarding the pollution incident directl
-------
933
C. Pemberton, Jr.
from the ROC, or where the ROT determines the situation
warrants, a professional information officer will be
detailed to the scene of the incident to establish a
news media contact office. The information officer at
the scene of a pollution incident will coordinate infor-
mation with the ROT prior to release. Information copie
of all formal news releases from the regional level will
be forwarded to JOG.
The agency furnishing the OSC in each
incident will also provide the necessary information
personnel as determined by the ROT. If this agency is
unable to provide the necessary information services
from its own information resources,, the ROT will arrange
for the detail of appropriate information personnel from
one or more of the signatory agencies.
In cases where the JOT is activated, it
may assume direction of any of the public information
activities of the ROT to more fully ensure the avoidance
of contradictory, overlapping, or uncoordinated national
or regional information releases on the same subject.
-------
C. Pemberton, Jr.
ANNEX XIII
TECHNICAL INFORMATION
The technical literature listed in this
annex is intended to provide general background informa-
tion on the handling of spills of oil and other hazardou
substances. It should be useful as reference informatio:
to the experienced OSC and instructional to less exper-
ienced personnel. A complete set of the references shouJLc
be maintained in each ROC.
1. Information and Procedures for Sig-
nificant Spills of Oil and Other Hazardous Materials
Into the Water Environnertt (USDI-FWPCA).
2. Chemical Data Guide for Bulk Shipment
by Water (U. S. Coast Guard CG-388).
3. Handbook of Toxicology (National
Academy of Sciences/National Research Council).
4. Natural Disaster Manual for State
and Local Applicants (OEP Circular 4000, 4, 1963)•
5. Federal Disaster Assistance (A
Pocket Guide to Disaster Help)(OEP Pamphlet).
6. Oil Spill Study, Research Report
-------
935
C. Pemberton, Jr.
(Battelle Northwest, November 1967) .
7- Character and Control of Sea Pollu-
tion by Oil (American Petroleum Institute, October 1963)
8. Manual for the Prevention of Water
Pollution During Marine Oil Terminal Transfer Operations
(American Petroleum Institute, 1964).
9- Chemicals Used to Treat Oil on Water,
Policy - July 5, 1968, (Copy attached).
10. Current Regional Oil and Hazardous
Materials Pollution Contingency Plan.
11. Disaster Plans Prom Regions, Dis-
tricts or Facilities of Signatory Agencies as Appropriat
12. U. S. Corps of Engineers Regulation
ER 500-1-1 and ER 500-1-8 Emergency Employment of Army
Resources (National Disaster Activities).
DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
POLICY ON THE USE OF
CHEMICALS TO TREAT FLOATING OILS
1. Chemicals should not be used to
emulsify, disperse, solubilize, or precipitate oil
-------
936
C. Pemberton, Jr.
whenever the protection or preservation of (a) fresh
water supply sources, (b) major shellfish or fin fish
nurseries, harvesting grounds or passage areas, or (c)
beaches is a prime concern.
Such chemicals should only be used in
those surface water areas and under those circumstances
where preservation and protection of water related
natural resources is judged not to be the highest
priority or where a choice as to resource preservation
may make the use of such materials a necessary alterna-
tive .
2. Examples of areas and circumstances
where the use of such chemicals might be acceptable are:
a. Where fire or safety hazards
are presented by the spill of a petroleum
product;
b. Where large numbers of water-
fowl may perish because of the proximity of
floating oil;
c. Under certain conditions, as
a "polishing" or final cleanup of light
slicks of oil following mechanical removal
-------
937
C. Pemberton, Jr.
of floating oils.
i
3. Chemicals that emulsify,, disperse,-
solubilize or precipitate oil should be used only under
the immediate supervision of the Federal Water Pollution
Control Administration except where it is judged that
fire or safety hazards require the immediate application
of such chemicals.
4. When chemical compounds are used in
connection with oil cleanup, only those compounds
exhibiting minimum toxicity toward the aquatic flora
and fauna should be used. The Federal Water Pollution
Control Administration is now developing and will soon
issue a standard procedure for determining the toxicity
of such chemicals.
5. Materials which aid in the collection
of floating oils such as sorbents, gellants and viscosit
additives are considered to be generally acceptable pro-
viding that these materials do not in themselves or in
combination with the oil increase the pollution hazard.
6. Research and development to improve
chemicals which emulsify, disperse, solubilize or pre-
cipitate oil is encouraged. Whenever it is demonstrated
-------
938
C. Pemberton, Jr.
to the complete satisfaction of the Federal Water Pol-
lution Control Administration, that such a chemical, by
itself and in combination with oil is nontoxic its use
may be approved in the areas where the protection or
preservation of (a) fresh water supply sources, or (b)
major shellfish or fin fish nurseries, harvesting ground
or passage areas is a prime concern.
July 5, 1968.
MR. STEIN: Mr. Poston, do you have any
more?
MR. POSTON: We have, in regard to
Recommendation No. 22, a report on the alewife situation
by Mr. Premetz of the Bureau of Commercial Fisheries.
Mr. Premetz indicated he could give this
report in a very few minutes.
-------
939
E. D. Premetz
STATEMENT OF ERNEST D. PREMETZ
DEPUTY REGIONAL DIRECTOR, BUREAU OF
COMMERCIAL FISHERIES, ANN ARBOR, MICHIGAN
MR. PREMETZ: Actually we are talking
about another little polluter, the alewife, which turns
out to be the anchorman of this Conference. You are
all familiar with the alewife skimming operation that
was undertaken in Lake Michigan this past year. This
was done cooperatively by the four States bordering the
lake, the Bureau of Commercial Fisheries and the Federal
Water Pollution Control Administration, and we believe
that effective gear has now been developed to handle
large scale die-offs on the lake. The States now have
equipment, pumps, trained people and a cadre of trained
commercial fishermen to handle any problem that might
come along in the future.
A report of the entire operation is in
final draft stage and being reviewed by the States. It
should be published by the end of March. A copy will be
submitted for the record of this Conference and I ask
-------
940
E. D. Premetz
that it be entered as part of the Conference minutes.
MR. STEIN: It will be made a part
of the record as Exhibit 1- and be on file at head-
quarters FWPCA and the Great Lakes Regional Office,
Chicago, Illinois.
MR. PREMETZ: All right, fine.
Now, the big question that is being asked
is what can we expect next year as far as alewife die-off
Our biologists have been carrying on a continuous assess-
ment of the alewife populations in the lake and we find
that the adult populations this year, or that is in 1968,
were at about the same level as the previous year.
Therefore, we expect the same sort of die-off we had last
year. In other words, a very minor die-off.
We did find in our sampling that the hatch
this past year, the hatch of alewives, was as large as
any on record. This coupled with a very large hatch the
previous year does make us wonder as far as 1970 and
1972. But we will be able to get a better fix on 1970
this fall when we sample the adult populations and the
-------
E. D. Premetz
following fall when we again sample the adult population
We have to wait until they reach adult stage before we
can tell just what sort of die-off we might expect.
How do we treat with this problem? Well,
we are afraid it is with us for as long as there are
alewives in the lake) there will always be die-offs of
varying magnitudes, depending upon the success of the
hatch of the alewife in any given year.
Will predators or commercial fishing
control the alewife? To some extent, yes, but not
completely, for the simple reason 1:hat you can't build
a commercial fishery on an extremely wildly fluctuating
population like the alewife nor can you introduce a
stable level of predators on a population which has
large ups and downs. In other words, you plant at some
intermediate level and this will not give you complete
control.
So the only thing we can suggest is that
during years when there are small die-offs that these be
handled on the beaches with the equipment the States
may have to take care of it. When we have massive die-
offs, that these be handled with the gear that has now
-------
942
E. D. Premetz
been developed, that is the skimming devices that were
tested this past year.
That is all I have.
MR. STEIN: Thank you, Mr. Premetz.
Any comments or questions?
If not, thank you very, very much.
By the way, I think in deference to Ernie
Premetz, who is the Chairman of this, and with Mr. Prince
from the Federal Water Pollution Control Administration
this was one of our more successful ventures. We showed
that a Federal-State-local cooperation program could be
set up. It is fortunate that we didn't get a lot of
alewives in 1968 when we expected them, because,while
we had a program, I am not sure we could have skimmed
them, although we would have made a valiant effort. But
with the experience we have I think we know how to do
it now. We know a lot more about alewives--by the way,
these fellows did a very efficient operation and we
even turned money back to the States and the other
governments because we didn't have the magnitude of the
die-off and we didn't have to spend all the money, and I
think that is a recommendation in itself as to how this
-------
E. D. Premetz
study was done. It was done very tight and we did get
a lot of results.
Thank you very much.
MR. PREMETZ: Murray, thank you for your
kind words.
I will say that Murray is very dedicated
too. A couple of weeks ago we found him down in New
Orleans in the French Quarter checking up on Klassen
and his diversion of wastewaters down the Mississippi
River.
MR. STEIN: I had a better story than
you. You told me you were investigating catfish.
(Laughter.)
MR. POSTON: I would like to call for
Ensign Clark,of the Coast Guard, to make a report now.
Recommendation No. 20 says that, "The Coast Guard will
be requested to report at the next progress meeting on
present and future plans for monitoring by aircraft
and reporting of pollution of Lake Michigan."
-------
944
M. Clark
STATEMENT BY ENSIGN MARTIN CLARK
LAW ENFORCEMENT OFFICER,, U. S. COAST GUARD
CHICAGO, ILLINOIS
ENSIGN CLARK: Chairman Stein, distinguishec
Conferees, ladies and gentlemen. I am Ensign Martin Clai
Law Enforcement Officer, Coast Guard Group, Chicago,
making this report in response to Recommendation #20
of the Enforcement Conference of February 1968 on behalf
of the Commander, Ninth Coast Guard District. As you
are aware, it was requested at the February 1968 meeting
of this Conference that the Coast Guard report present
and future plans for monitoring by aircraft and reporting
of pollution on Lake Michigan.
Under the authority of the Refuse Act of
1899 and the Oil Pollution Act of 1924, the Coast Guard
is a "detecting and reporting" agency in the enforcement
of these regulations. The Coast Guard considers enforce-
ment of the Oil Pollution and Refuse Acts as an active
responsibility. The funds for carrying out this function
come from the Coast Guard budget, no additional funds
-------
M. Clark
have been available to extend Coast Guard activity in
pollution control.
Coast Guard participation in the enforce-
ment of Federal water pollution laws is accomplished by
the following:
1. Ninth Coast Guard District air statior
conduct aircraft patrols of all the Great Lakes with the
exception of Lake Ontario, on a weekly basis. (Lake
Ontario is inspected twice weekly by Coast Guard aircraf
These aircraft patrols give the Coast Guard a quick over-
all picture of water conditions, and act as a deterrent
effect to polluters.
2. Surface pollution patrols are con-
ducted by the following Coast Guard units in lower Lake
Michigan:
Coast Guard Station S. Haven, Michigan -
monthly patrol
Coast Guard Station Michigan City, Indiana -
monthly
Coast Guard Station St. Joseph,, Michigan -
weekly patrol
-------
946
M. Clark
Calumet Harbor - weekly
patrol of Calumet and
Indiana Harbor areas.
CGC Arundel - weekly patrol
of Chicago area and Chicago
Sanitary and Ship Canal.
3. In addition, Coast Guard port safety
personnel from Group Office Chicago conduct pollution
patrols in the Calumet and Indiana Harbor areas and the
Chicago Sanitary & Ship Canal downstream to Henry, Illino
on a regular basis. Daily patrols to these areas are
conducted, and the effectiveness is considered excellent.
I will summarize by stating that the
Coast Guard will continue to actively investigate and
report all incidents of pollution which we encounter.
MR. STEIN: Thank you.
Are there any comments or questions?
If not, thank you very much, Ensign.
Are there any other comments or questions?
If not, Mr. Boston, do you have any more?
MR. POSTON: That is the end of our
committee reports and Federal presentations.
is,
-------
EXECUTIVE SESSION 9^7
Summary
MR. STEIN: If we may, now, let's see
if we can summarize this. I think the report is so good
that we are in effect in a progress meeting operation.
One, from the statements of Illinois,
Indiana, Michigan and Wisconsin, I think it is evident,
not only evident but we are abundantly clear, that the
States under their own programs and the cities and
industries within their respective jurisdictions are
well on their way to meeting the requirements set by
the Conference to clean up Lake Michigan. These largely
deal with fixed municipal and industrial sources of
wastes and the prospects look—I almost hesitate to use
the word""excellent,"but I will—excellent for substantia
compliance by the date set by the Conference. That is
1972 that we should have this done.
I would like to put one thing out for the
Conferees-—that on the question whether we adopt the 80
percent phosphorus removal on a Statewide or basinwide
basis for each State, let them do that and come/up with
a schedule for reduction, to give them flexibility in
handling their small and large communities and getting
the most effective result, the most expeditious and
-------
948
Summary
economical way.
MR. POSTON: I think I would be agreeable
to that, Mr. Chairman. I think that should be 80 percen
of the discharged phosphate from municipal and industrta
sources.
MR. STEIN: That is what was proposedr-
that the States will make an estimate or compute their
phosphate loadings and then come up with their program,
indicating they have a total reduction of 80 percent,
which is what we were looking for from the beginning.
But with the experience with the program,we have indi-
cated that this could be more easily achieved if they
did not have to apply that 80 percent to every little
point or every major point. Some of the major cities
may get 90 percent; some of the little places may not
get the 80 percent. But the reduction will be over 80
percent overall.
What do you think of that, Mr. Poole?
MR. POOLE: Sounds reasonable.
MR. FRANGOS: Just a clarification on Mr.
Poston's comment. He said "discharged." Our request is
on the basis of the input to the treatment plant. Do
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9^9
Summary
we have a real problem here?
MR. STEIN: I don't think so. Do we?
MR. POSTON: No.
MR. FRANCOS: All right.
MR. POSTON: I did want to include
industrial wastes in this.
MR. FRANCOS: Yes, we understand that.
MR. STEIN: It comes from all sources.
I would prefer not to use the word — let me check this--
in the summary, Tom.
MR. FRANCOS: Yes.
MR. STEIN: --so there be no misunder-
standing. I would prefer not to use the words "input"
or "discharge." We are putting'Bo percent of the phos-
phate loading." And I will give you as much flexibility
as we can on your computation and how you are going to
reduce it.
Because what we are dealing with here
is the reduction of the phosphates that go into the
lake. We have an allocation for each State and if you
meet that allocation you are going to do it. I think
we are going to exceed that 80 percent by more if wfe giv
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950
Summary
you this flexibility, because any time you have a large
city or a large industry with a big problem and you can
get them to do 90, we are that much ahead in the pounds.
Yes, sir.
MR. PURDY: I have some reservations with
respect to this. In our presentation here we had a cutofi
of populations or municipalities with populations less
than 2,000 and have instituted a program to require 80
percent removal of the total phosphates from all above
2,000. This now represents roughly 92 percent of the
population within the Lake Michigan Basin in those
municipalities above 2,000 population. To achieve a
total basinwide reduction of 80 percent would require
in the neighborhood, if we strictly adhere to this, of
90 percent phosphate removal at those plants. And about
one year ago,the testimony that was put into the record
at that time indicated clearly that we could look towards
achieving a consistent removal of 80 percent or better
with the available technology. However, if I remember
that testimony by Dr. Weinberger, he also indicated that
he couldn't state that for a 90 percent removal.
If we have to strictly adhere now to an
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951
Summary
objective where we would look at these larger communi-
ties and say we are going to achieve a 90-plus percent
phosphate removal, I don't believe that we have the
technical testimony in the record to indicate that we
can achieve this.
MR. STEIN: I think they put it in last
time, Ralph. But as I understand this, the technology
has moved ahead to the point that in the larger com-
munities the thinking of the experts now is it is
going to cost you about the same to get 90 percent
removal as 80 percent removal if you are running a
good plant.
I recognize this was set up when it
was, and your program got started. Why don't we
work it like thisr-you evaluate it and see what comes
out. This is just a question of judgment that if
you can get a 90 percent for about the same as an
80 percent, this may solve itself in the Michigan
communities.
MR. PURDY: If we can do that within
that context, I don't see any problem.
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952
Summary
MR. STEIN: Yes, I know.
MR. PURDY: But where we are this far
down the road —
MR. STEIN: I recognize that.
MR. PURDY: --on an enforcement program
and to change the ground rules at this time and say,
now, we didn't mean 80 percent; we mean 90 percent—we
have difficulty.
MR. STEIN: Right. I think you have a
point. But let us try this. Let us get a report as
we have--and we are going to propose progress meetings--
on the kind of phosphate reduction we are planning and
in fact getting. We are starting something new and
whatever the prognosis is, 80 or 90 percent, when these
progress reports come in, I assume we are going to have
to make adjustments to meet experience and reality and
then see what is actually happening. Knowing your progran
is on the road, let's get a report from all with this
understanding that you will continue with your program.
MR. PURDY: I think we lose the confi-
dence of the people that are trying to meet our objec-
tives if we can't make up our mind and keep it over one
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953
Summary
year.
MR. STEIN: Yes. The difficulty with
these fast-moving fields is that you get overtaken
by events. The technology, particularly in phosphate
removal, has been improving at a very rapid pace,
even as we have been meeting and refining this.
Now, I don't view this as a substantial
differentiation. What we are going to have to do is
gather our experience on the phosphate removal program
to see what actually happens. Actually, what we are
dealing with here is a new process and new requirement.
In a sense, I don't want to put this that we are deal-
ing with a theory that is not going to work, but we
are dealing with a theory. We are going to review this
from time to time to see what kind of modifications or
improvements we have to make on them.
So I believe with that, perhaps, we can
go forward.
Now, I have these other reports. Well, let
take the one on which we might get the most agreement. We
can more or less adopt the report of the Monitoring
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Summary
Committee, with the proviso of the consideration that
Mr. Frangos from Wisconsin made--they give considera-
tion to adjusting the monitoring point at Two Rivers,
Wisconsin, to reflect the results that he indicated
in his proposal.
And with that I think the Monitoring
Committee is well on its way and can go further. I have
a comment from one of the Conferees that the Lab Committee
is to meet no more often than six months intervals, which
is all right with me. Why don't you save your fights up?
Now, the next one on pesticides, I think
there again we have a very active program to be put into
effect. As far as the report goes, I would say that we
can accept the report or propose that we accept the repor'
of the Pesticides Committee. But in view of the discussior
we have to ask Dr. Mount, possibly, and representatives
of the States to get together and embark on an active
pesticide monitoring program and data gathering program
for the kinds of pesticides which are being used in the
basin and where they are being used so we can make a
meaningful report. Now, the kind of people you may want
to get to work on this other end of the field may not be
IS
-------
955
Summary
the scientists that you have working on the measuring
operation. But I think we are going to have to have
both of these if we are going to come up with meaningful
judgments on the pesticides.
Again, I think we maybe are being over-
taken by results because various States have legisla-
tion to ban completely the use of certain pesticides.
If they do it, I guess they do it, but this is some-
thing we will have to take into consideration.
The next point I have is the status of
agricultural pollution and the steps being taken to
alleviate it. Now, I believe we need a report from the
States. Again, you may want to do this individually.
But I suggest that we set up some kind of committee
where we can at least talk in terms of setting up some
ground rules for identifying what we are going to
include. We should have a report from the States as
to l) what they regard as pollution problems from
agriculture, if any, 2) where it is and what programs, if
any, are around to alleviate it, and 3) what they would
propose or what we would have to do to come up with this
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936
Summary
program.
With the report we had today we have
just taken the first step on this agricultural pro-
gram. We had a very nice bird's-eye view of the
national picture, but I think we have to get this
down into the Lake Michigan Basin.
By the way, there should be a report
from the States whether cattle feed lots do, in
fact, constitute a pollution problem in their State.
I don't know what the situation is in these States,
but you may be surprised if you look around.
Now we come to the Thermal Pollution
and Nuclear Pollution report. Again, I think we
should accept that report for what consideration we
can give it. But I am not sure that we have the
proposals for an action program on that report. What
we had—and Mr. Kittrell who gave the report indicated
this—was a proposal for further study. This should
be considered by the FWPCA and the States if they want,
under our program operations,to work on the study.
But I do think that we have to have from
the States a recommendation as to what the Conferees
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937
Summary
are to do, if anything, on controlling nuclear pol-
lution and thermal discharges. We have to determine
whether this may be covered by your standards,
particularly on thermal pollution, or whether we
have to go further and whether we have enough require-
ments on that.
Again, I am sure you will agree, we
have had an interesting first go-round. Perhaps,
we don't have to do any more on this, but I don't
think we have put that one to rest.
MR. PURDY: Agreed.
MR. STEIN: Right.
MR. PURDY: Murray.
MR. STEIN: Yes.
MR. PURDY: When you say that we are
accepting the reports, does this mean that they are
being adopted by the Conferees?
MR. STEIN: No. No. Accepted for con-
sideration. Now, the one report that I do think--!
think we have two reports that we can move forward from.
One is that Monitoring Committee report, if they will
continue, and I am not asking you to adopt the full
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958
Summary
report, but I think the monitoring group can go on,
use that as a basis with your recommendation to do its
monitoring and come back with other information.
I think the pesticide group has laid out
the problem and with the other aspect of the problem
that I indicated,what materials are being used in the
insecticide problem, if you want to narrow it to that,
what materials are being used and where they are being
used, and set up a program for monitoring some streams
and see if we can get a cleanup. I am not at all sure
that we are that far ahead on the other reports.
As far as nuclear power and thermal dis-
charges,! think we will have to ask Mr. Poston to take
the lead and the States come up with a committee to
make specific recommendations of where we go on that.
On agriculture and cattle feed lots, I
think we are going to need a specific recommendation of
where we go on that if anywhere.
Now, I think that covers it all. I think
we have pretty well done a very good job as far as the
States can go on watercraft, and,of course,there is
Federal legislation pending. The research, of course,
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959
Summary
we will hear from,from time to time, but I think that
has to just continue. You probably knew this was a
long-range program and I think this about covers all
the items here.
What I do think is that this has indicate
that we are really moving very well with these programs.
I suggest we probably have a sense of euphoria--we are
in the first blush of the program and the defects and
the laggards haven't shown up yet. But there are none
apparent now. It is also apparent that at the first
go-round we haven't quite got our fingers on the nuclear
problem or thermal discharge problem yet, whether we
will ever get our fingers on it; we don't quite have it
on the agricultural problem yet; we are pretty much
moving ahead with a solid program on monitoring; and we
are at least in the batter's box on the pesticide progra
and we may go out to get specific results.
And we are well down the road, we are
heading around the bases on our big problem, and that is
industrial and municipal wastes, discharge treatment,
chlorination of the effluent and phosphorus removal,
and this is a great thing.
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960
Summary
Are there any other comments or questions^
Yes, Mr. Purdy.
MR. PURDY: On the Pesticides and Monitor"
ing Committee reports, I think that they are in good
shape to be adopted and that the particular surveillance
recommendations made are programs that we should attempt
to implement.
MR. STEIN: Right.
MR. PURDY: However, say to implement
them to the last as presented in the report, I don't
think that we can commit ourselves to that.
MR. STEIN: That is precisely why I held
this back and made this kind of distinction. I think
we can move ahead on the monitoring and pesticide report
but I think obviously before you would want to commit
yourself to every word of that report you would need
a lot more time, and to get the program necessary I don1
know that that is really necessary.
MR. PURDY: In many instances I think
that all of the States have moved forward--
MR. STEIN: Right.
MR. PURDY: --and are accomplishing much
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961
Summary
of the monitoring recommended.
MR. STEIN: I agree with that.
Are we set? Are there any other comments
MR. POSTON: You indicated that we had
moved along on phosphate removal and chlorination, and
I wondered, is there complete agreement that all munici-
pal treatment plants will provide chlorination regardles
of whether they are a stabilization pond or package plan
or what-have-you regardless of size? It is my understand
ing that that was, but I wanted to kind of clarify it.
MR. STEIN: Do we have the recommendation
of the Conferees? Where was the first Conference record
Didn't we recommend chlorination?
MR. LELAND: Across-the-board.
MR. STEIN: That is what I thought. I
didn't know that was an issue.
MR. POSTON: I don't know that it is., but
I thought I would get a clarification--
MR. STEIN: All right. If that is an
issue, let's hear about it, but I thought that was a
recommendation.
MR. PRANGOS: Mr. Chairman, it is my
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962
Summary
recollection that there was some question about this
at the last Conference as it related to lagoons.
MR. LELAND: No. 4, Murray.
MR. PURDY: Mr. Chairman, in that particu
lar case I think I should clarify our report that our
lagoons in Michigan are not flow-through lagoons, they
are storage lagoons discharged twice a year, long de-
tention times, and testing has shown fairly low coliforn
counts in the effluent when they are discharged in the
spring and fall and that we have not at this point in
time required chlorination of the lagoons where we can
operate them on a fill and draw basis.
MR. STEIN: Here is what it says, and
if there is any problem on that let's--maybe this should
be taken on a case-by-case basis. This looks like we
are scrambling for inches here, but what it says is:
"Continuous disinfection is
to be provided throughout the year for all
municipal waste treatment plant effluents.'
Now, I think if there are specific plants
that you feel this applies to that the requirement is
not being met, I think we should begin dealing with
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963
Summary
specifics on this rather than act. I can see where there
is some leeway on this if a--and we heard some statement
made, for example, by Mr. Frangos, of having holding
lagoons for stormwater or something of that kind in a
treatment plant. You may want to run some of that
through the treatment plant when you can, at other place
you don't, and is that a plant effluent just because it
goes through the lagoon and the stormwater comes out.
If F¥PCA or your field crei\? have any specific plants
where you feel that this 4 is not being applied, let's
have a report on them if you can't resolve it and take
it up one at a time.
MR. POSTON: I had no particular one in
mind.
MR. STEIN: Right. But I don't know; we
may be making a problem where none exists.
Are there any other comments or questions?
If not, I thank you all for coming. The
hotel now has five minutes to set this up for their
dinner. We thank them very much and we stand ad.journed.
(Whereupon, at 6 o'clock p.m., the
Conference was adjourned.)
(Permission was given to submit for the
record the following appended~documents.)
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964
March l';, 1069
Your Reference: ^LFDG-L''J
Ccrr.andir? fiei-id:m, Illinois 60037
Dear Pir:
T}iis is in rc^ly to a letter fron Mijor Ssrald Krcll, dot.-3 T'nrch 12,
1$7695 T"3rtaifii7i'' "to n. Rtrtvn reoort prepared "by Coloi)<^l 71. B. ^7°,rrior
en rotontir1.! I.'j1:f; ''iclii^p.n rollut,ir-..n scui'C'j?! urdcr the .luriS'licv'.ucn of
Headouiirtcrs Tifth U.S. Ar:r.v, ar.d f)r>^3entecl at th^ !^.ve 'ricai™fra I'nforcG-
inert Confer or.. c£ in Chicn.ro, Tllinni", on T-net:ria?.r'^ 25, 1?.^?.
V'e vould like to r'.ahe t^/o additionr. to Colonel ^firmr's r-^nort, a?
follovs:
a) To include the identification of the tvo ";i:T nit OP, ITo. ''r
vliich h?.s "boon closed, anil "o, Ji5 vhich has br?r?n reduced to
administrative type functions.
b) To include -3, projected cormlotion d^to CT" .June 30, 19^9 for
the sever connection for ccnveyin-? the stca-1 plant "Mo'.'dc'.m
',ra.tei* to the sar.itar:; ne'.rer systeir. and thence to the r-evi^e
treatrent plant.
If you concur vith the a'oove sup^er»ted edditior.s, the amended ntatus
renort viH "he included in the tra.nscriTvt o^ proceedings of trie reconvened
conferenc".
Your cooperation in this natter ii n-nprecicterl.
Sirc-?rely vours ,
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ALFGD-EU
965
DEPARTMENT OF THE ARMY
HEADQUARTERS FIFTH UNITED STATES ARMY
FORT SHERIDAN, ILLINOIS 60037
Mr. h. W. Poston
Regional Director
Federal Water Pollution Control Admin.
33 East Congress Parkway, Room
Chicago, Illinois 60605
Dear Mr. Poston:
In reply to your letter of March lU, 1969, we advise that Headquarters
Fifth US Army concurs with additions a) and b) as shown.
Sincerely yours,
1LT, ACC
Asst Adjutant General
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966
DEPARTMENT OF THE ARMY
HEADQUARTERS FIFTH UNITED STATES ARMY
FORT SHERIDAN, IUU1NO1S 60037
1 2 MAR i;.S3
ALFGD-3U
Conferees in the Matter of Pollution
of Lake Michigan and its Tributary Basin
ATTW: llr. H. W. Poston, Regional Director
Federal Water Pollution Control Administration
33 East Congress Parkway, Room UlO
Chicago, Illinois 60605
Gentlemen:
In accordance with a request from Mr. H. W. Poston, the Federal Conferee}
dated February 11, 1969 j Colonel 'S. B. Warner, Chief, Engineer Divi-
sion, Headquarters Fifth US Army, prepared a status report on
potential Lake Michigan pollution sources within your interest and
under the jurisdiction of Headquarters Fifth US Amy.
At the reconvened conference on February 2$, 19o2, it was determined
that a formal statement was not applicable and Colonel Warner's
report was provided extemporaneously. Consequently, Headquarters
Fifth US Army has been requested to provide a written version of his
report.
The progress report on the four potential pollution sources under the
jurisdiction of Headquarters Fifth US Amy was as follows:
a. The waste from the four NIKE sites located within the State
of Indiana is chlorinated. On December 11, 1958, the conferees of the
conference on pollution of the interstate waters of Grand Calunet
River, Little Calumot River, Calunst River, Wolf Lake, ana Lake Michi-
gan and its tributaries were advised by the Federal Water Pollution
Control Arninistration that all four of those NIK?, sites were in
compliance with th3 roconnen' ations of those conferees. Headquarters
Fifth US Army has thus concluded that these NIK,"] sites are also in
compliance with the recommendations of this conference and no further
-------
967
ALFGD-EU
Conferees in the Matter of Pollution
of Lake Michigan and its Tributary Basin «
improvement is planned. In the interim, one of the NIKE site areas
has been closed, and the activities at another have been reduced to
merely administrative type functions. Full-time population does not
exceed 100 persons.
b. Fort Sheridan steam plant blow-down water will be treated
by discharging same to ths Fort Sheridan Sewage Treatment Plant.
The approximate 30 feet of connecting sewer will be installed by
in-house forces, using local funds already available, as soon as the
ground thaws.
c. The Fort Sheridan Water Treatment Plant is undergoing a
rehabilitation and construction program. The repair portion is
being accomplished with funds and approval available to Fort
Sheridan and is currently underway. The construction portion includes
facilities for treating the backwash water. Unfortunately, the
construction portion can only be accomplished with- funding and approval
of the United States Congress. This project is currently included
in the fiscal year 1971 Ililitary Construction Program. It was origi-
nally programed for ftvnding in fiscal year 1970, but the project
was deferred to fiscal year 1971 by the Department of Defense.
Assuming that the funds are authorized as currently programmed, the
earliest possible date Fort Sheridan will be in compliance with the
conference recommendations on backwash water vail be approximately
one year beyond the date set by this conference.
d. Nutrient removal for the Fort Sheridan sewage effluent will
be provided by discontinuing the sewage treatment plant operation
and diverting tho sewage to the North Shore Sanitary District.
This approach also requires Congressional approval and the necessary
project was included in the fiscal year 1970 Military Construction
Army Program but was deferred by higher headquarters to the fiscal
year 1971 Program. If Congressional approval and funding is pro-
vided as currently scheduled, the required December 1972 completion
date relative to treatment for phosphate removal can be met.
Following the vorbal presentation, the conferees asked Colonel Warner
if the Fort Sheridan effluent was chlorinated and they were advised
affirmatively. The conferees also aslcsd if Fort Sheridan had a
commitment iron the 1I3SD to accerrt the sewage. The conferees were
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968
4 ALFGD-EU
". Conferees in the I latter of Pollution
„ of Lake Michigan and its Tributary Basin
advised that a comnitment had been obtained from the NSSD several
years ago and bhat this commitnent was now in the process of being
updated.
Sincerely yours,
Copy furnished:
CO, Ft Sheridan, Illinois 60037
U S GOVERNMENT PRINTING OFFICE 1969 O—353-398
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