INTFP-DKPAKTMEN'T'AL TASK FORCE
               0??
        PRn.TErT
si IB-TASK ^OPCE ON V/ATEP
        February 1, 196?

-------
                              841 R67O01
  INTER-DEPARTMENTAL TASK FORCE
             ON
        PROJECT POTOMAC
SUB-TASK FORCI-: ON WATER QUALITY
        FINAL REPORT
      February 1, 1967

-------
                         UNITED STATES ,-  .   '
                 DEPARTMENT OF  THE INTERIOR
        FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
The Honorable Kenneth Holum
Chairman, Inter-Departmental Task Force
           on Project Potomac
Department of the Interior
Washington, D. C.  20240

Dear Secretary Holum:

The Water Quality Sub-Task Force of the Inter-Departmental Task
Force on "Project Potomac" submits herewith its final report on
its activities and findings regarding vater quality problems in
the Potomac River Basin. •             .

During the past year, and following submission of its-Progress
Report of November 1, 1965, the Sub-Task Force was able to arrange
for the initiation of a number of, studies and investigations as ah
aid in completing .its assignment.  Some of these investigations
are still underway, but,most of them have been carried to, the point
where some tentative conclusions could at least be drawn.

The Sub-Task Force was exceedingly'fortunate regarding some of .
these studies in that the Federal Water Pollution Control Admin-
istration already ha.d underway its comprehensive study of water
pollution in the Chesapeake Bay drainage basin, as part of its
Chesapeake-Susquehanna Comprehensive Project.  The field staff
assigned to this project, located at Annapolis, Maryland,  under-
took a number of special investigations at the request of the
Sub-Task Force, and also made available findings resulting from
its continuing studies in the Potomac Basin.  Without the exist-
ence and cooperation of the project, the Sub-Task Force could not
have completed its assignment.    "  '

In additionfto the forgoing studies, the Federal Water Pollution
Control Administration also provided assistance through staff of  „
its Regional Office in Charlottesville, Virginia, its research
and technical services staffs in Cincinnati, and its Headquarters
Office.             '

Other agencies who were consulted, or who undertook studies or
provided data for the Sub-Task Force were the Sub-Task Forces on
Water-supply and Flood Control and on Erosion and Sedimentation,
the staff of the Interstate 'Commission on the Potomac River Basin,
the District Office of the Corps of Engineers, the Department of

-------
                             - 2 -
                  «
Sanitary Engineering of the Government of the District of Columbia,
the Metropolitan Washington Council of Governments,  the Tennessee
Valley Authority, the Chesapeake Bay Institute and the Faculty and
graduate students of the Johns Hopkins University, the U.S.  Geological
Survey, the U.S. Public Health Service, the Maryland Office  of the
Soil Conservation Service, the Agricultural Research Service, and
the Dow Chemical Company,

The Sub-Task Force gratefully acknowledges the splendid cooperation
and assistance of these various organizations and of the individuals
associated with them.  It also wishes to record its  thanks to the
representatives of the four States and the District  of Columbia who,
as observers and members of the Governor's Advisory  Committee on
the Potomac River Basin, met with the Sub-Task Force, participated
in its discussions and provided advice and council.   The Sub-Task
Force desires to point out, however, that these observers are not
to be considered as sharing in any of the responsibility for this
Report.

For the Sub-Task Force on Water Quality.

                               Sincerely yours,
                              0!
                               Earl J. Anderson
                           Chairman, Sub-Task Force
                               on Water Quality
Enclosure

-------
 2

 9


 9

 9

10
                           CONTENTS

                                                                 Page

Letter of Transmittal

Roster of Members and Associates, Sub-Task Force on Water Quality   1

Summary of Findings, Conclusions and Recommendations

Section I - Introduction

     1«  Foreword

     2.  Assignment of the Water Quality Sub-Task Force

     3.  Scope and Limitations of the Report

     h.  Sub-divisions of the Potomac River Basin                  n

Section II - Water Quality Requirements; Criteria                  12

     1.  General Objectives                                      .  12

     2.  For Recreation and Esthetic Enjoyment               .     '12

     3.  For Swimming                                              12

     1*.  For Municipal Water Supply                                13

     5.  For Fish and Aquatic Life                                 13

     6.  Other    ,                                                Ih

Section III - The Flowing River Portion of the Basin               15

     1.  Existing Pollution                                        15

     2.  Studies and Investigations Undertaken                     15

     3.  Inventory of Waste Discharges, Stream Conditions and      15.
           Treatment Needs

     1+.  Flow Regulation Storage Requirements                      IT

     5.  Nutrients, Algae and Rooted Aquatic Vegetation            IT

     6.  Herbicides for Control of Aquatic Vegetation              19

     T(  Mine Drainage and Mineral Pollution                       20

-------
     8.

     9.

    10.

    11.

    12.

    13.


Section

     1.

     2.

     3.

     U.

     5.

     6.
                                                        Page

 Sedimentation                                           22

 Bacterial Pollution - Limitations on Swimming           22

 Problems of Swimming in Small Impoundments -              23

 Need for Re-Study of Bacterial Swimming Standards        2U

 Physical Suitability of the Potomac for Swimming     .   2k

 General Conclusions Regarding Water Quality  in the
 Flowing River                                           2U

IV - The Estuarine Portion of the Basin                  26

 Area Affected by Pollution         •                     26

 The Upper Estuary - Existing Water Quality Conditions   26

 Existing Waste Treatment Facilities   '                  27

 Additional Facilities and Programs Required              28

 Investigations and Studies Undertaken                   28

 Problems of Nutriert Reduction for Algae Control -
 Alternative Proposals                                   28

     (a) Dilution by Flow Regulation       .              29

     (b) Schemes for Diversion of Wastes Out  of the
         Basin                                           30

     (c) Diversion of Wastes to the Lower Estuary        31

     '(d) Renovation and Direct Re-Use' of Waste Waters     31
     (e) Advanced Waste Treatment for Phosphorus Removal  33


                                                          31*
             (f ) Dilution of Residual Phosphorus after Advanced
                 Treatment
     7.

     8.

     9.
     (g) Multiple Attack Methods of Reducing Phosphorus   3^

 Additional Requirements for Reduction of BOD       '      37

 Pollution from Combined and Storm Sewer Overflows        37

 Sedimentation Problems                                   39

-------
                                                              Page

    10.  Turbidity Problems                                     UU

    11.  Accumulated Sludge Deposits and Bottom Muds            1*5

    12.  Pollution from Boats and Marinas                       U6

    13.  Bacterial Pollution - Limitations on Swimming          UT

    lU.  Use oT Upper Estuary for Emergency Water Supply        U8

    15.  General Conclusions Regarding the Upper Estuary        kg

ection V - Implementation     .                                  51

ection VI - Needed Additional Studies                   .        52

    1.  Weed for Reexamination of Bacterial Standards for
        Natural Swimming Waters                                 52

    2.  Need for Reexamination of the Flow Regulation Provisions
        of the Federal Water Pollution Control Act*             51*

-------
 Edmund Couch, Jr.

 Walton Durum
 Lloyd. Reed
   (to Dec. 30, 1965)

 Carl Fetzer
   (after Dec. 30 s 19o5)

 Keith Krause
   (to June 30, 1966) •

 Earl J.  Anderson
   (after June 30, 1966)
 INTER-DEPARTMENTAL TASK FORCE

              0?.                                        .

        PROJECT POTOMAC

SUB-TASK FORCE ON WATER QUALITY

          .  MENSSRS

               Corps of Engineers, U. S. Army  .

               U. S. Geological Survey, Dept. of the  Interio

               Soil Conservation Service4 Dept. of Agricultu
               Soil Conservation Service» Dept.  of Agricultu:
               Ci'.iirrr.ars; Federal V/ater Pollution Control
                 Administration, Depts. of nEw and  Interior

               Chairman; Federal Water Pollution Control
                 Administration^' Dept. of the interior
  OBSERVER ASSOCIATES - REPRESENTATIVES OF-THE GOVERNORS ADVISORY

              COr-KITTEE ON THE POTOMAC RIVER BASIN
  aiter  Lyon
 Paul Kc?:oo
 Noel Val^nza
 Albert  Paessler
              'D, C. Depo. of Health
               ?a. Dept. of Health
               .Md. Board of V/ater Resources
               Md. Dept. of Health
               Ya. Board, of Water Control
 2ern Wright (to Juno 8t 1966)  Wes^ Virginia Dept. of Natural Resources
.Edgar Henry (a.v'ter J\:r:c 5S 1966)  West Virginia Dept. of Natural  Resources
   ADVISORY ASSOCIATES FROM STAFF OF THE INTERSTATE COMMISSION

                   ON THE. POTOMAC RIVER BASIN

 Keith  Fry                      Carl Johnson
         c "^ r*O 7?rp A p v   TP'" ^" T V
         o/!iL..n£jJ.Ai\I — jii-ju-iii

Kelvin  2.  Scheldt
         GR AND COORDINATOR OF STUDIES

               Federal Water Pollution Control Administration
                 Depts. 01' HEW and Interior

-------
                SUMMARY OF FINDINGS AND CONCLUSIONS

1.  The assignment of the Sub-Task Force on Water Quality was  to (l)
    determine the quality of water needed for the various proposed uses
    of the Potomac River,* (2) ascertain the existing quality  invbhe  several
    reaches and tributaries of the river and (3)  determine the remedial
    measures required and their costs in those situations where water
    quality is or will be unsatisfactory.

    Limitation of time and existing inadequacies  in  technical  and scientific
    knowledge and basic data placed severe restrictions on the Sub-Task
    Force in accomplishing its assignment.  The conclusions reached are
    tentative and some are conjectural and must await further  investigation
    and research.  Costs, where given, are based  on  very rough engineering
    estimates.  For purposes of analysis, the basin  was divided into  (l)
    the upper, flowing river portion and (2) the  estuarine or  tidal portion.

2.  Principle water quality requirements are that: dissolved oxygen should
    not be less than U iniligrams per litre 90% of the time nor less than
    3 mg/1 at any time; dissolved phosphorus should not be greater than
    0.1 mg/1; and coliform bacteria in swimming water areas should, on
    the basis of existing State Health Department requirements, be not
    more than 2,^00 per 100 mililitres for 90$ of the time nor more than
    1,000 for 50$ of the time.  Water intended for use as a public water
    supply source should meet the Public Health Service Drinking Water
    Standards.  Recreational and environmental waters should be free  of
    visible floating or suspended solids, oils and greases, heavy growths
    of rooted aquatic plants, slimes, and high concentrations  of algae,
    and should not be discolored nor excessively  turbid.  Swimming water
    areas should be free of hidden hazards or other  dangers.  Water tempera-
    tures should not be elevated by industrial cooling processes to such  a
    degree as to interfere with aquatic life.

3.  In the "Flowing River" portion of the Basin:

    (a) Pollution from municipal and industrial waste discharges occurs
    at various places throughout the Basin, but  certain areas, such  as
    the kk mile reach below Luke, Maryland, and the  20 mile reach below
    Waynesboro, Virginia, are more acutely affected.  Eighty-five percent
    of all municipal wastes, and eighty-three percent of all industrial
    wastes in the flowing river portion of the Basin now receive some
    treatment.  However, new or additional biological or secondary waste
    treatment facilities are required at  a number of locations throughout
    the basin to insure the removal of at least 85 percent of the BOD.
    present in the waste water effluents, and an equivalent level of
    treatment should be provided for all  industrial waste discharges.  In
    addition, some industrial discharges  require further research before
    suitable treatment methods can be provided.

*   The 1965 amendments to the Federal Water Pollution Control Act require
    the respective States to establish by June 30, 19^7» appropriate criteria
    for various  streams within their jurisdictions.   When established, these
    standards may modify the findings of  the Sub-Task Force.

-------
(b)  In addition to the waste treatment facilities called for in (a)  above,
flow regulation storage for water quality control, in amounts essentially
equal to those called for in the 1963 report of the Corps  of Engineers
on the Potomac River, will be required at various places in the Upper Basin
to meet the water quality goals described.  These findings are based on the
requirement that at all locations adequate treatment of the polluting wastes
be first provided at the source.  Adequate treatment was considered to be
attainment on a basin or area wide basis of 80 and 85 percent reduction of
the five day BOD in the discharges to the river, by the years 1985 and 2010
respectively, except in the Washington metropolitan area, where removals of
85 and 90 percent respectively are required.  It should be noted that these
are average levels, applicable to all wastes generated in the Basin and
obtainable at all times, and include allowances for such untreatable pol-
lution as storm water runoff.  Actual treatment of wastes at the specific
treatment plants would need to be at a higher level to achieve these averages.

Because of the^multiple purpose nature of the flow regulation storage re-
leases, with corresponding sharing in joint costs, preliminary estimates
indicate that such storage would be cheaper than advanced waste treatment.
Anticipated improvements in waste treatment techniques, when realized should,
however, make practicable higher degrees of treatment, with corresponding
reductions in the amounts of .flow regulation storage required to achieve
the desired water quality goals.  Therefore, at each stage of development
of the Basin, the flow regulation requirements should be reexamined to
determine the possibility of substituting advanced waste treatment as an"
alternative to storage.

(c)  .The annual average concentration of phosphorus in the lower reaches
of the flowing river and its tributaries is two and a half times the accept-
able maximum.  Most of this phosphorus originates on the land, and is chemic-
ally bonded to soil particles.  Treatment of municipal wastes to remove
phosphorus would therefore accomplish little.  Use of reservoirs as nutrient
traps would also be relatively ineffective.  Also, no practical processes
have yet been devised for removal of nitrogen.  There is therefore little
prospect.of improving the nutrient situation in the upper river until
better methods of removal or control are devised.  Rooted aquatic plants
will consequently continue to be present in considerable quantities in the
non-mountainous portions, of the Basin.  Herbicides have been proposed to
control these plant growths, but much research will be required to develop
specific selective herbicides which are not toxic to other plant or animal
life.         .  '

(d)  A total of 95 miles of streams in the North Branch sub-basin of the
Potomac are affected by acid mine drainage.  They are unsuitable for fish
and are in many places esthetically unattractive because of deposits in
the stream .bed of insoluble iron compounds.  Satisfactory methods for
controlling acid mine drainage have yet to be demonstrated, but research
and demonstration studies have been initiated by the Federal Water Pollution
Control Administration.  Needed surface reclamation work on some 11,000 acres
of pre-regulation disturbed mining lands is estimated to cost $10 million.
Areas disturbed after passage of existing legislation are being controlled
by the reclamation requirements.

-------
(e)  The Potomac River discharges some 2 1/2 million tons of
sediments annually into the tidal estuary at Washington.  Water-
shed management practices proposed by the Department of Agriculture
could, when completed, result in approximately a 50$ reduction in
this sediment load.  Reservoi :-n, if and when built, could further
reduce this load.  These sediments have relatively little physical
effect upon the flowing river, but are damaging to the estuary.
In addition they interfere with the esthetic enjoyment of the river
and its environs during and following storms.

(f)  Bacterial conditions, as determined by widely scattered
sampling during the prolonged dry Summer of 1966, were generally
satisfactory for swimming in the main stem and some of the tribu-
taries of the Potomac but unsatisfactory in the Shenandoah sub-
basin.  Other samplings, taken at other times, indicate that land
run-off during storms generally raises the bacterial count in the
river above the established swimming water standards.  Such
samplings, widely scattered in both time and space, should not be
relied on, however, for determining the acceptability of the water
for swimming at any specific location.  The conditions which may
prevail at any site require a detailed bacteriological examination
extending over sufficient time to permit an evaluation under all
conditions of flow and weather.  A sanitary survey of the area
is also required.  Similar examinations are required for small
impoundments intended for swimming use.  Physical conditions
should also be examined to ensure that physical hazards or un-
attractive conditions do not exist.

(g)  The reliability of the bacterial standards used in judging
natural swimming water quality is in question.  These standards
should be re-examined.  This need is discussed in the section on
Needed Additional Studies.

.(h)  It is generally concluded that, except for those areas affected
by acid mine drainage, it should be possible to maintain or return
the remainder of the basin to an esthetically attractive condition,
suitable for general recreation and support of fish and wildlife.
Provision of a suitable swimming environment within existing
bacterial standards is questionable for much of the basin, however,
but must in any case be determined on a local, site by  site basis.
Determination of costs of needed additional pollution control
facilities must await completion of more detailed surveys.

In the Estuary:

(a)  Only the upper, fresh water portion of the estuary, in and
adjacent to the Washington Metropolitan region, is seriously
affected by major pollution problems.  The remainder of the
estuary is generally acceptable for all appropriate uses except

-------
for minor pollution conditions in a few.local areas adjacent to
towns and villages', which should be readily correctable.

(b)  The Upper Estuary, from Little Falls to Quantico, is seriously
polluted by discharges of inadequately treated waste waters con-
taining excess quantities of organic oxygen demanding substances
(BOD), heavy concentrations of phosphorus and other plant nutrients,
and high bacterial loads resulting from inadequate chlorination.
Large volumes of storm water and combined sewer overflows during
storms also adds substantially to this pollution.  Erosion from
construction sites in the metropolitan area contribute 25 percent
of the sediments deposited in the estuary, even though the area
is only 2 percent of the total watershed area above this  point.
Heavy algal growths, stimulated by. the excessive amounts of phos-
phorus and other nutrients create unsightly and noisome nuisances
and, upon their decay, create a secondary pollution which helps
depress dissolved oxygen in the estuary and promotes fish kills.

(c)  The District of Columbia waste water treatment plant at Blue
Plains is not achieving the degree of waste treatment needed to
meet the BOD reduction requirements of the 1957 Federal Water
Pollution Control Enforcement Conference, and also requires con-
struction of additional features to meet increased loads.  Some
other plants in the metropolitan region, including some at Federal
establishments, also require improvements or expansion to meet
these requirements.

(d)  The most serious pollution problem in the-upper extuary is
that caused by the presence of nutrients, as evidenced by excess
phosphorus, which stimulate the growth of algae-  Dilution of these
nutrients by 'flow regulation is for the most part impracticable.
The major portion of these nutrients must therefore be prevented
from reaching the estuary.

(e)  Diversion of the nutrient laden waste waters to other areas
outside the basin, such as the Atlantic Ocean^ the Chesapeake Bay,
or to spreading or underground injection areas, is considered too
expensive or undesirable for other reasons.  Diversion of the wastes
to the lower estuary is equally* undesirable, for ecological and-other
reasons.

(f)  Removal of phosphorus from the treated waste waters by advanced
treatment appears to be an economical and practicable alternative
at an additional cost of 5 to 6 cents per thousand gallons, but
will not be sufficient by itself to control the algae blooms.

(g)  A combination of advanced waste water treatment, dilution by
flow regulation releases from upstream storage, and dispersal of
the highly treated wastes in the lower portion of the upper estuary

-------
would probably maintain the phosphorus content in the upper estuary
at or below the prescribed 0.1 mg/1.  The least cost combination,
for 1985 conditions, would require, in addition to advanced treat-
ment, between 600 and 1,000 cfs of inflow from upstream at all times,
plus diversion to and wide dispersal in the lower portion of the
upper estuary of up to 250 mgd of the treated waste waters.

(h)  There is need for additional treatment for reduction of the
BOD remaining in the waste waters following secondary treatment, in
order to maintain a satisfactory oxygen level in the estuary.  Advanced
waste treatment for removal of phosphorus would probably also remove  .
sufficient residual BOD from the effluents to accomplish this
objective.  Flow regulation releases from upstream would there-
fore apparently not be needed for BOD control, although they would
contribute towards this end.

(j)  Application of the forgoing measures would probably make it
possible to use the upper estuary as a possible emergency water
supply source under certain conditions.  Direct reuse of waste  •
waters for water supply purposes, after a high degree of treatment,
has been examined as an alternative  and is considered less feas-
able than other available alternatives at this time.

(k)  Treatment and control of storm water and combined sewer
overflow discharges are required for complete clean-up of the
estuary for swimming and general recreation.  A variety of
detention and treatment facilities at about 1^0 locations through-
out  the Metropolitan Area might be needed for this purpose, at
an estimated cost of about $2 billion, but considerable research,
engineering investigation and demonstration will be required to
determine the most effective methods to be used.

(l)  Even with the most effective application of watershed treat-
ment measures, considerable sediment will continue to be deposited
in the estuary.  Dredging will continue to be required to maintain
both the navigation channels and the general utility of the estuary
as a recreational boating area.  Extensive areas now exhibit serious
shoaling with depths of from 1 to U feet, and this shoaling will
continue.  Salvage of these areas will require the dredging of
several tens of millions of cubic yards of material.  Location of
suitable sites for disposal of the dredged material presents a
difficult problem.

(m)  A program of sediment detention and erosion prevention measures
to be applied at all construction and sub-division sites  in the
Metropolitan area is required to control local discharges  of
sediments to the estuary.  The Sedimentation and Erosion  Sub-Task
Force is giving consideration to appropriate coordination  with
State and local governments to control this source of sediments.

-------
5.
 (n)   Even with the best possible  erosion  control, the estuary will
 continue to present a muddy  and hi/jhly turbid appearance after  storms
.which will persist for days  afterwards because  of tidal stirring.
 Application of polyelectrolytes to  settle this  turbidity, while
 not  yet established as a  fully effective  measure, has been proposed
 to correct this  situation.   Costs are estimated at from one to  one
 and  one half million dollars per  h  month  recreational season.

 (o)   Accumulated muds and sludges on the  river  bottom do not present
 as serious a pollution problem as originally believed.  With adequate
 waste treatment, these problems may disappear.   Dredging to deepen
 the  estuary would also alleviate  this situation.

 (p)   Boats are a source of pollution, especially at marinas, where
 hundreds of boats are berthed.  Some of these marinas are on Federal
 property and measures to  correct  this situation should be taken under
 the  directive regarding pollution from Federal  establishments.  State
 and  local programs for the correction of  boat and marina pollution
 in general are required.

 (q)   Provision of treatment  and disinfection for all waste water,
 storm water and  combined  sewer discharges to the estuary would
 greatly reduce the bacterial pollution in the estuary, but would
 not  completely eliminate  it. Very  detailed examination of every
 stream and run tributary  to  the estuary,  and the invoking of very
 exacting regulations regarding control and disinfection of all
 discharges to the streams would be  required, as well as complete
.elimination of all untreated wastes from  boats  and marinas, before
 the  health authorities would be prepared  to publicly sanction swim-
 ming in this portion of the  estuary, and  then only on the basis of
 regular bacterial samplings  which indicated & favorable bacterial
 count,

 (r)   It is generally concluded that it should be possible, at reason-
 able cost, to eliminate the  algal bloom problem in the upper estuary,
 make it suitable for fish support and for a possible emergency
 source of water  supply, and  except  during times of storms, esthetic-
 ally acceptable  for environmental and general recreational uses.  It
 might also be- possible at not too great a cost  to reduce its un-
 sightly turbid appearance following storms by the application of
 coagulants.  Beyond these measures, however, elimination of pollution
 from storm wate.r and combined sewer overflows,  from boats and marinas,
 and  from hidden  sources discharging into  the tributary creeks might
 require massive  expenditure  and many years to accomplish.

 Implementation of an effective pollution  control program in the
 Potomac River.Basin requires:

 (a)   Creation of an effective organization having the authority
 and  responsibility, cooperatively with all affected levels of
 government, to develop and manage a pollution abatement program

-------
    involving provision of the extensive facilities and measures  outlined
    above, and possessing the ability to respond effectively over time to
    inevitable changes in economic, social and political conditions.   An
    implementing organization is probably the most important need revealed
    by this study.

    (b)  A program of training, certification and supervision of  waste
    treatment plant operators throughout the Basin.

6.  Several problems of national significance requiring considerable
    additional study emerge from this review of water quality problems
    in the Potomac Basin.  These are:

    (a)  There is a widespread dissatisfaction with the existing  bacterial
    standards used in evaluating natural swimming waters.  It has become
    apparent that bacterial conditions in these waters cannot be  accur-
    ately determined solely by the coliforirr criterion now used as a
  -  statistical indicator of the presence of pathogens.  Use of this
    index may be misleading, particularly where the coliform organisms
    originate primarily on the land rather than in municipal and  indus-
    trial waste effluents, and reliance on it could preclude certain
    water uses despite the absence of pathogens.  Better indices  or
    other methods of determining bacterial pollution are therefore
    needed.  Re-examination of the bacterial standards for natural
    swimming waters is therefore required and might well be'initiated
    in the Potomac Basin as a model for- the Country.  The Secretary/-
    should, accordingly, press for initiation of such a study, to be
    undertaken cooperatively with the Public Health  Service, the Agri-
    cultural Research Service of the Department of Agriculture, and
    appropriate other health oriented agencies and institutions of
    the Country.

    (b)  Under- certain circumstances, the inclusion in Federal reservoirs
    of storage for water quality control at Federal expense, as provided
    for in the Federal Water Pollution Control Act, may be more costly
    or less desirable than some other alternative-such as diversion of
    the wastes to another water body, or advanced treatment.  The Act
    now provides only for flow regulation storage, however, whereas the
    most economical or most desirable alternative should be the one
    actually adopted.  Also, where flow regulation is appropriate in  one  •-
    part of the basin but another alternative is more economical or more
    suitable in another part of the same basin, this limitation can re-
    sult in inequitable demands upon some of the polluters, or incomplete
    provision of pollution abatement measures.  This provision of the law
    should accordingly be broadend to permit consideration on an equal financ-
    ing basis of all alternatives, in situations where additional measures
    are required for pollution abatement following provision of "adequate"
    treatment of wastes at the source.  Reexamination of this provision of
    the law, with the objective of developing suitable amending legislation,
    is recommended.  Steps toward this reexamination are now being taken by
    the Department of the Interior, the Water Resources Council  and the
    Bureau of the Budget.

-------
                                REPORT
                                  OF
            INTER DEPARTMENTAL TASK FORCE ON POTOMAC RIVER
                      SUB-TASK FORCE ON WATER QUALITY

                           December 15, 1966
                       SECTION I" - INTRODUCTION
1.  Foreword
    The goal established, by the President's directive  to  Secretary  Udall,
    was to "Clean up the Potomac River and keep it  clean  so  it  can  be
    used for boating, swimming, and fishing."   In addition to these uses,
    however, the river and its tributaries must also serve as a source
    of municipal, industrial, and cooling water; supply certain amounts
    of agricultural water; provide an esthetically  acceptable environ-
  •  mental setting not only for the Nation's Capital^  but for .the
    intensive use of adjacent lani areas of the basin  for recreation,
    residential and other development; serve,  in its lower reaches, as
    a commercial shell and finfish area and as a navigation  channel; and
    finally, serve as the vehicle for the final transportation  and  dis-
    posal of a large portion, if not all, of the basin's  waste  waters,
    after appropriate treatment.

    The task of determining how these objectives could be attained  was
    assigned by the Secretary to an Inter-departmental Task  Force,
    chaired by Assistant Secretary Holun.  The Chairman,  in  turn,
    appointed four sub-task forces, to be concerned, respectively,  with
    Water Supply and Flood Control, Erosion and Sedimentation,  Recrea-
    tion and Landscape, and Water Quality.  This document is the report
    of the Sub-Task Force on Water Quality.

2.  Assignment of the Water Quality Sub-Task Force

    The Sub-Task Force on Water Quality was assigned the  responsibility
    for:

         1.  determining the quality of water required for the  several
             uses enumerated above;

         2.  ascertaining the existing quality of'the  water  in  the
             several reaches and areas of the river in relation to  the
             intended uses; and

         3.  in those situations where the existing or projected quality
             is not acceptable, determine the remedial measures required
             to bring it up to the level considered desirable  for the
             uses contemplated, and the costs of so doing.

-------
                                                                      10
3.  Scope and Limitations of the Report
    The Sub-Task Force, in undertaking its assignment,  has  attempted,  to
    deal with all phases of the water quality problem.   The conclusions
    reached are, in most instances, however, tentative.  The Sub-Task
    Force had the benefit of field work conducted by staff  of the
    Chesapeake Field Station of the Federal Water Pollution Control
    Administration, but their studies are only now in progress,  with
    much yet to be done before a definitive program for the entire  basin
    can be developed.  Tentative results of research investigations in
    waste treatment processes, now in progress, were also made available
    by staff of the Federal Water Pollution Control Administration, but
    these are subject to further modification as their  findings  are
    refined.  The absence of historical as well as current  detailed
    Water Quality records and data for many places in the basin  has
    hampered evaluation of past and present situations.  The question-
    able basis of some of the existing standards upon which the  findings
    of the Group had to be based raises serious questions of policy
    which must be resolved before final recommendations for an action
    program can be made with confidence.  Costs, where  presented, are
    based on crude computations and the most meager of  data, and are
    intended only to give some rough idea of the possible order  of
    magnitude of the potential expenditures which might be  expected.

    The combination of these factors means that there is a large potential
    margin for error in the evaluation of technology and in the assess-
    ment of costs upon which the tentative conclusions  are  based.  Never-.
    theless, the Sub-Task Force believes that the report can be regarded
    as a reasonable first approximation of the possibility, practicability
    and feasibility of attaining within the basin the water quality
    goals set forth in the directive to the Task Force.

    With the exception of the North Branch, where detailed surveys •
    have been completed, consideration has been given to very broad
    reaches of stream only, in preparing the report.  Shorter reaches
    within the areas discussed may have a water quality varying from
    that indicated.  Closer examination would be necessary to judge
    water quality in specific areas actually proposed for recreation
    development.  Such examination may require actual stream studies  in
    the field to obtain current data.  In considering swimming use, no
    detailed field evaluation was given to necessary access to the stream,-
    safety with regard to stream velocity, water depth, under, water
    obstructions, conditions of banks and bottom, and similar factors.
    In judging water quality for this use, major emphasis was placed on
    coliform concentrations and turbidity.

    In judging the suitability of waters for fishing, only the dissolved
    oxygen assets of the stream were considered.  Other environmental
    factors such as type of stream bottom, water depth, aquatic life and
    temperature have an important bearing on fish survival and propagation.
    It is assumed that the evaluations being made by the Fish and Wildlife
    Service will judge these stream characteristics.

-------
                                                                   11

In considering esthetic requirments, major attention was given to
problems of elimination of gross pollution, nuisance factors,  algae
blooms, sediments, and other factors affecting physical appearance.

In approaching its task as a whole, the Sub-Task Force kept in mind
the objective of using the Potomac River as a model for the entire
United States.  Accordingly, certain broad policy issues are dealt
with which, while directly affecting decisions in the Potomac,
nevertheless are of equal importance Nationally in planning for the
development of other river basins.

Sub-divisions of the Potomac River Basin

The Potomac River is essentially a combination of two distinctly
different hydraulic systems; the "Flowing River," extending from the
mountainous headwaters to the head of tide at Little Falls, and the
"Tidal Estuary," extending from just below Little Falls to the
Chesapeake Bay.  With respect to the management of the waters of
the basin, these two systems have a mutual inter-relationship which
mast be recognized in planning for the use of the basin's waters,
but from a physical, chemical and biological point of view, these '
two systems behave differently.  They must therefore be studied and
dealt with by different techniques.  This report accordingly discusses
the water quality problems of these two systems in seperate sections.

-------
                                                                      12
                SECTION II - WATER QUALITY REQUIREMENTS
1.  General
    The water quality required for the several uses  enumerated in the
    Introduction was made the subject of intensive study and discussion
    by the Water Quality Sub-Task Force.  Based on its finding, the
    Sub-Task Force, in its November  l , 1965 Progress Report, proposed
    a set of Water Quality Criteria as planning goals.  These have, in
    general, again been applied in this report.  For reasons discussed
    in the section on Policy Issues, however, it was found necessary to
    stiffen the bacterial parameter for swimming water quality to meet
    objections raised by the State Health agencies.   Policy questions
    regarding the adequacy of the basis upon which these latter standards
    have been established are also discussed in Section VI on Policy
    Issues.  The criteria, and/or modifications thereof are presented
    below.

2.  For Recreation and General Esthetic Enjoyment.

    The water body must be free from visible floating, suspended and settle-
    able solids (especially from sewage, industrial or other waste origins)
    and debris.  There should be no sludge deposits, and mud banks should
    not be in visible evidence nor cause shoaling which would interfere
    with the passage of boats.  The water body should be essentially
    free from heavy growths of rooted aquatic plants, slimes, and high
    concentrations of algae and other plankton which cause excessive
    clouding.  For control of such algae and plant growth, the inorganic
    dissolved phosphorus content of the water during the growing season
    should not be greater than 0.1 mg/1 as P(0.3 for PO, ).  The water
    must.not be discolored or display excessive turbidity from sediments
    or other causes.  There should be no visible oils, greases or emulsions,
    foaming, or emission of gases produced by decomposing organic matter.
    Water temperatures should not be elevated by industrial- cooling pro-
   • cesses to such a degree as to interfere with aquatic life or with
    the use of the area for recreation.
3.  Additional Criteria for Natural Swimming Water Areas .and for Body
    Contact Snorts.
   (Note:  A distinction must be clearly made between swimming in natural .
    waters and in artificial pools or organized bathing areas of intensive
    use.  In the latter cases, a ~,uch higher bacterial standard is usually
    imposed because of the higher density of use, the absence of free
    water circulation, and the fact that coliform bacteria in any amount
    in such pools indicates fresh fecal pollution.)

    (a)  The most probable numbers of coliform bacteria should be less
    than 2*400 per 100 milliliters (2^00/100 ml) for 90 percent of the
    time and less than 1000/100 ml at least 50 percent of the time, based
    on arithmetic averages.  (The original proposal of the Sub-Task Force

-------
                                                                     13

    called for 1000 and 5000,  based on  geometric  averages,  a substanti-
    ally more liberal standard.   See Section VI for further discussion)

    (b)  There should be no discharges  in the area of use of any  sewage,.
    treated or untreated, no animal pollution, nor any  substances which
    might be detrimental to the  health  of swimmers, even though the
    water otherwise meets all other criteria imposed.

    (c)  The turbidity of the water should not prevent  a Secchi disk  from
    being visible through 5 feet of the water*
                                                                   i
    (d)  The pH of the water should be  within 6.0 and 9.0.

    (e)  The area should be free from hidden rock outcrops, snags, tree
    stumps,  heavy weed growth,  pot holes and sudden drop-offs and muddy
    bottoms and banks.

U.  For Municipal Water Supply.

    The water in a stretch of river which is or may be  utilized as a
    source of drinking water supply shall contain no substances that
    cannot be removed by conventional treatment normally capable  of pro-
    ducing a finished drinking water complying in all respects with the
    Public Health Service Drinking Water Standards. The temperature  of
    such water should not exceed 85°F.   The dissolved oxygen should not
    be lower than 3 mg/1.  Free  ammonia should not exceed 0.3 iag/1 and
    the pH of the water should be within the range of 6.5 to 8.5.

5.  For Fish and Other Aquatic Life.

    Dissolved oxygen should be not less than 1+ mg/1, 90% of the time,
    nor below 3 mg/1, at any time**, pH should be within 6.3 and  9.0,
    and specific conductance at  25°G (for fresh waters  only) within the
    range of 150 to 500 times  10~° mho.  Temperatures should not  be above
    93°F at any time***, nor greater than T3°F during the period  of
    December through April. There should be no toxic substances detrimental
    to fish life.  In shellfish  growing areas, coliform bacteria  must meet
    the State and Public Health  Service requirements, the latter  of which
   "states that coliform levels  in shellfish growing water  shall  not
    exceed a median of 70/100 ml. for fully approved, unrestricted grow-
    ing areas and not over 700/100 ml.  median in  any case.
    This goal is considered desirable, but it is recognized that,  under
    natural conditions, waters which do not generally meet it are  and can
    be used for swimming by the general public.  This fact, however,  does
    not excuse water abuses which impair water quality and which are  amenable
    to control.                           .

    **#  por special cases such as trout streams requiring colder  waters,
    these goals must be modified to suit the specific situation.

-------
For Other Uses.

Water of a quality satisfactory for the uses discussed above vill
generally be satisfactory for other uses, such as agriculture and
industry.

-------
                                                                       15

                    SECTION III -. THE FLOWING RIVER

1.  Existing Pollution - General Conditions.

   .Water quality in the flowing river section of the Potomac River
    Basin varies widely with location.  Pollution at various points is
    cause'd by waste water discharges from municipalities and industries,
    acid mine drainage, and surface runoff from farms and other areas.
    Polluting substances include organic waste and chemicals, acids-,
    phosphate and nitrate plant nutrients, bacteria and sediments.

2.  Studies and Investigations Undertaken.

    As part of its Chesapeake Bay - Susquehanna River Basin Comprehensive
    Studys the Federal Water Pollution Control Administration, in coopera-
    tion with various State and Federal agencies, municipalities and
    industries, undertook extensive field surveys to determine the sources
    and .extent of these polluting substances, the effects upon the river,
    .and the remedies required to reduce this pollution to acceptable
    levels and to maintain it at these levels.  These studies and
    analyses are not yet complete,, but have progressed sufficiently to
    permit a reasonably accurate evaluation of the overall problem and
    of the remedial measures which appear to be required.  As pointed
    out below, more refined investigation and analysis will be required
    to provide final solutions with respect to some problems and some
    specific locations.  The results of the investigation to date are
    presented in the following paragraphs.

3.  Inventory of Waste Discharges,, Stream Conditions and Treatment Meeds.

    An inventory of waste discharges from municipalities and industries
    was prepared by field staff of the Federal Water Pollution Control
    Administration, showing the location and characteristics of all dis-
    charges in the basin.  While Appendix V of the Summary of Water
    Quality, Potomac River Basin in Maryland, October 1965, was used as
    a basis for this inventory, supplementary information received from
    the cooperating agencies in the various States occasioned some
    significant revisions.  In the North Branch, the data were developed
    by the Federal Water Pollution Control Administration  as part of
    its detailed sanitary survey of that stream.  It should be noted,
    however, that the Maryland Department of Water Resources and the
    Virginia Water Control Board propose to compile waste inventories
    in December 1966, which will update the inventory and provide more
    •meaningful data.  It should also be noted that:

         (a)  Most of the basic data^were obtained from measurements
              and analyses by agencies other than the Federal Water
              Pollution Control Administration.

         (b)  Most analyses were based on grab samples and may not
              be considered representative except in the few cases
              where taken regularly over, a long period of time.

-------
                                                                  16

     (c)  Some plant performances vere based upon observer's  physical
          inspection estimate.

     (d)  Many plant data figures varied widely so that  judgment  had
          to be exercised in selecting the most representative figures.

     (e)  For most of the small plants the figures were  as  much as
          five years old.  The state agencies do not have the force
          to update the information except where the effluent has
          become a basis for complaints.

Within the limitations surrounding the inventory as set  forth above,
the general observation can be made that about 85 percent of  all
municipal and 83 percent of all industrial was'tes receive treatment
to seme degree.  However, in addition to the need to provide  treat-
ment for the remaining 15 percent of the municipal discharges, a
number of existing municipal plants will require either  expansion
of existing facilities to provide for increased loads, or increased
degree of treatments  or improvement in the operation of the  treat-
ment facilities provided.  This is also true of a number of industrial
discharges.  In addition, some industrial discharges are of such  a
nature that further research will be required to develop suitable
methods of treatment.  Tannery wastes, such as those at  Petersburg, West
Virginia, and elswhere, are a case in point.  These wastes  are
difficult to treat, and development of adequate methods  and facilities
will require a specific research effort.  It is encouraging to note,
however, that in the case of the Petersburgh situation,  some  research
is already under way.

The inventoryj plus visual inspection surveys and samplings of river
water quality reveal certain areas where pollution problems are more
extensive or acute than is generally the case in the basin  as a whole.
Thus, the North Branchs from Luke. Maryland for a distance  of about
Uk miles downstream is affected by the discharge of large quantities
of untreated or partially treated industrial wastes as well as raw
or partially treated sewage from several communities.  This condition
causes a lowering in the dissolved oxygen of the river,  an  increase
in stream color} solids and turbidity, and the deposition of solids
and sludge deposits, all of which detract from the utility  and value
of the stream for fishing, recreation and esthetics.  Additional
waste treatment facilities are badly needed in this section of the
river.

Similarly, the South River branch of the Shenandoah, for twenty miles
below Waynesboro, is badly degraded by both municipal and industrial
wastes.  Elsewhere in the basin, the effects of inadequate waste treat-
ment are less extensive but nevertheless detrimental.  Substantial
additional investigation, sampling and analysis will be required,
however, before a complete, definitive statement of conditions and
treatment requirements at all locations can be made.  The Sub-Task
Force nevertheless wishes to emphasize that it will in any case be   •   .

-------
    necessary to provide a minimum of secondary  treatment  of  all wastes       :
    wherever found,  if the water quality goals set  forth herein are to
    be achieved.  This is the first,  and most important requirement in
    dealing with pollution in the Upper  Basin.   Beyond such treatment,
    it will also be  necessary to provide releases from storage during
    low flow periods,  at certain locations,  to maintain the desired
    water quality.  This requirement  is  discussed more fully  below.

    Weed for Flow Regulation Storage  for Water Quality Control.

    Investigations previously conducted  by the Division of Water Supply
    and Pollution Control of the Public  Health Service (now the Federal
    Water Pollution  Control Administration), in  connection with the 1963
    studies of the Potomac Basin by the  Corps of Engineers, indicated
    the need for the provision of storage in a number of the  proposed
    reservoirs in the Basin for the purpose  of regulating  river flows
    to maintain suitable water quality in the streams.  These findings
    were based on the requirement in  each case that adequate  treatment
    of the polluting wastes at the source would  first be provided.
    Adequate treatment was taken to be 80 and 85 percent removal of 5
    day BOD in the basin in the years 1985 and 2010 respectively,  except
    in the metropolitan area of Washington where removal levels of 85. and
    90 percent respectively are required. It should be noted that these
    are average levels, obtainable at all times, and are applied to all
    wastes generated in the Basin.  (See Vol. 5  of  1962 Corps of Engineers
    Eeport, p 8, for full explanation).

    The current studies on which this report is  based confirm these earlier
    findings.  On the basis of existing  waste treatment techniques, only
    minor differences in the required storage volumes have been found.  It
    must be emphasized, however, that extensive  research into new  methods
    of treating wastes, now under way, may produce  new processes which  could
    materially modify these requirements. Reexamination of the flow regula-
    tion storage requirements of th«  Basin should therefore be undertaken at
    each new stage in the development of the basin, in connection  with the
    planning of each successive dam and  reservoir,  at the  time it  is proposed
    for construction,  to.reflect'and  take advantage of new developments in
    waste treatment  as these bee one available.
    In the determination of the need for flow regulation storage,  evaluation
    should also be made of all possible alternatives for providing the needed
    improvement in river water quality following provision of "adequate"  waste-
    treatment, and that alternative selected which is the most economical or
    for other reasons is considered the most desirable.    Questions  of authority,
    financing^ and equity are posed by this necessity.  Problems surrounding
    consideration of these alternatives, including advanced waste  treatmentr
    are discussed in more detail in Section VI on Needed Additional Studies.
5.  Nutrients, Algae and Rooted Aquatic Vegetation.

    Except in the more mountainous sections of the Basin, upstream from
    the farming areas and urban communities, the waters of the Potomac

-------
                                                                   18

"basin have been found to be rich in phosphorus and. nitrogen.  Phos-
phorus  is of particular concern in studying the pollution problems
of the  basin because it is believed to be one of the key controllable
elements in the promotion of excessive algae growths, expecially in
the  estuary.   Phosphorus, jointly with nitrogen, is also thought to
be primarily responsible for the substantial growths of rooted aquatic
plants  found in the streams throughout the basin below the forested,
mountainous regions.  Even if phosphorus should prove not to be the
primary nutrient which stimulates plant growth, however, it serves
as a good indicator of the concentration of other possible growth
factors being  contributed by sewage effluents.

In the  waters  flowing out of the forested regions, phosphorus con-
centrations are only about one half the amount considered allowable.
In the  remainder of the basin, the concentrations are substantially
above this limit.  Throughout the length of the main stem of the
river inorganic phosphorus averages about 2 1/2 times the allowable
limit of 0.1 milligrams per litre.

Much of this phosphorus is believed to originate on farm land, how-
ever, and reaches  the river as a result of land runoff.  A large
part of this phosphorus is chemically bonded to soil particles and
because it is  only extremely slowly soluble, is unavailable for
algae growth.  At  times of high flow, some of the increase in total
phosphorus is  also believed to result from re-suspension of sediments
deposited in the river, to which the.phosphorus is attached.  Upon
reaching impoundments, or upon arriving at the head of the tidal
estuary, that  part of the phosphorus which is chemically bonded to
the  soil particles settles out, leaving only a relatively small part
of the  total phosphorus in solution and therefore available as an
algal nutrient.

Control of soil attached phosphorus is directly associated with
control of runoff  and erosion of sediments from the land, and no
separate solution  to this problem is presently discernible.  Control
of that part of the phosphorus which is in solution is largely associated.
with provision of  appropriate treatment of sewage and other waste
odischarges.  -While it would be entirely feasible to remove this phos-
phorus  by advanced treatment of these wastes, the recent studies of
this problem by the Federal Water Pollution Control Administration
staff indicate that it would result only in a small and ineffective
reduction in the phosphates in the  estuary.  However, the phosphorus
bonded  to soil particles in the sediments of the stream bed may have
some influence on  the growth of the rooted plants in the flowing
river portion  of the basin.

Studies of the effects of impoundments upon the phosphorus  content
of the  stream  indicate that this also would have little beneficial
effect. Examination of the possibility of relying  on an impoundment
at the  proposed Seneca Dam site to  trap nutrients indicates that the
Phosphorus trapping effeciency of  the reservoir would be low and of

-------
    little benefit to the estuary, but the reservoir itself might  suffer
    from serious infestation of rooted plants similar to those  which  in
    recent years have plagued some of the Tennessee Valley Authority
    reservoirs.

    The tentative conclusion reached is that in general it would be expensive
    and relatively ineffective to try to control or remove phosphorus in the
    flowing river portion of the basin by means of advanced treatment of
    waste discharges.  In specific areas,.however, where rooted aquatic
    plants are especially troublesome, it may be desirable to undertake a
    thorough study to determine the reasons for such growths  and the  sources
    of any nutrients involved, as a basis for devising appropriate control
    measures.  It can be expected, however, that rooted aquatic plants
    will in general continue to be present in considerable amounts in the
    streams of the Basin below the mountainous areas, especially during
    the warmer periods when stream flows are naturally low.

    While nitrogen is also an important plant nutrient, its removal or
    control presents difficult problems, and no practical process  for
    accomplishing such removal is yet available.  Much additional  study
    must be devoted to the whole problem of nutrients before  their effects  .
    can be fully understood, and effective measures devised for their
    control.

6.  Herbicides for Control of Algae and Aquatic Vegetation.

    A suggested alternative to the.removal of nutrients from  waste dis-
    charges as a means of controlling algae and rooted aquatic  plants
    is the use of selective herbicides.

    Considerable research on the control of algae and submersed aquatic
    weeds with herbicides has been conducted in irrigation and  drainage
    canals by the Department of Agriculture.  As a result of  this  research,
    herbicides have been used extensively in irrigation and drainage  canals
  •  in the Western States and by the Corps of Engineers for aquatic weed
    control, and have proved to be easier, much faster, and frequently
    less expensive than mechanical control.

    New and more effective selective'herbicides are constantly  being
    discovered; many have low mammalian toxicity.  Some herbicides are
    highly selective against a gi^en plant species and are not  effective
    against closely related species.  Moreover, some herbicides are
    effective in extremely low concentrations.  It seems reasonable to
    believe therefore that it might be possible to develop safe effective
    herbicides for the selective control of aquatic weeds in  large bodies
    of flowing water such as the "otomac River.  Such herbicides could
  .  be used safely and economically without damage to fish or wildlife
    and without impairing the value of potable water.  However, these
    materials cannot be developed without extensive research.

    It is suggested therefore, that it might be worthwhile to initiate
    such a research program in the Potomac Basin for the development  and
    testing of herbicides to control specific types of aquatit  vegetation.

-------
                                                                     20
7.  Mine Drainage and Mineral Pollution.
    Problems of nine drainage are confined to the North Branch of the
    Potomac River and some of Its branches.  The area affected is located
    in Garrett and western Allegany counties in Maryland,  and in Tucker
    and Grant and Mineral counties in West Virginia.

    The streams primarily involved are the North Branch of Potomac River
    from its source to Westernport, Md., and 12 tributary  watersheds.
    The larger tributaries are Laurel Run in Garrett  County,  Md., Abram
    Creek in Grant and Mineral Counties, W. Va., Georges Creek and Wills
    Creek in Allegany County, Md.  Savage River is mildly  polluted by
    Aaron Run in the mile above its confluence with North  Branch.  The
    UU miles of North Branch, above Westernport, are  known to be strongly
    acid.  About 50 miles of tributary streams in Maryland and West
    Virginia are known or believed to be seriously polluted,  making a
    total of 95 miles of streams polluted by mine drainage.

    In most streams which carry mine drainage, the pH is consistently
    below 5 and frequently below 3 or lower.  A pK of 1.8  was measured
    in mine drainage sampling conducted by the Federal Water  Pollution
    Control Administration in the North Branch watershed.   Insoluble
    yellow and reddish-brown iron compounds ("yello boy")  are precipitated
    from mine drainage by natural oxidation and hydrolysis.  These com-
    pounds, predominantly iron hydroxides, coat stream beds for long
    distances.

    Active as well as inactive mines are believed to  contribute signifi-
    cantly to mine drainage pollution.  In particular, Piney Swamp Run
    (below Masteller Coal Co. holdings) in Mineral County, W. Va., and
    Abram Creek are severely polluted after flowing through active surface
    mining areas.  Elk Run, in Grant County, W. Va.,  is badly polluted
    just below the Alpine Coal Co. coalyard and some  of the mines.

    Seepage through coal mine waste (gob) piles produces a water similar
    to drainage from the mines themselves.  Gob is also used as an aggre-
    gate for road construction and repairs.  This spreads  the problem
    over the countryside.

    Coal dust and fines from coal washeries have on occasion been re-
    ported in North Branch or its tributaries.  Lagoons are used to
    settle out the coal fines, but some fines are discharged to the air
    and settle out on the surrounding watershed.  During heavy rainfall,
    these fines may be washed into the stream.  Lagoons are also sometimes.
    constructed of gob, and seepage from them is acid.

    Neutralizing a stream which  carries mine drainage eliminates the
    acid condition, but either leaves the  stream with an excessive
    concentration of dissolved solids or produces an insoluble precipitate,
    depending on the alkali used to neutralize the acid.   In practice,

-------
                                                                  21

both conditions are likely to occur.  The West Virginia Pulp and
Paper Co. (Westvaco), until recently discharged, "lime mud" (lime and
CaCCU) from the regeneration of process liquors, at Luke, Md.  A
sludge consisting of lime, calcium carbonate> -and gypsum was deposited
for 15 miles' downstream, and high hardness and sulfate concentrations
were measured even further downstream. .

Acid conditions reduce the ve luf? of a river for most purposes.  The
stream bed discoloration detiacts from recreational values.  Fish
and other aquatic life, which are sensitive to many water impurities,
can not survive.  Without chemical adjustment, the waters are also
unsuitable for municipal water supply and industrial use.  Corrective
action must therefore be taken to reduce the mine drainage, if the
area is to be made suitable lor swimming, fishing, and other uses.

The Maryland Department of Water Resources has recently completed
an inventory of mine drainage which includes all of the Potomac
Basin in Maryland.  The MDWR samples acid streams quarterly, and the  \
FWPCA also took two samples at the MDWR stations in 1966.  Less is
known about mine drainage, sources in West Virginia.  The extent of
mine drainage pollution in West Virginia.streams, however, was defined
by the FWPCA sampling operations in 1966.

Proposals have been made as .a part of the FWPCA contribution to the
Corps of Engineers Appalachia Water Resources Study to inventory
acid sources on the West Virginia side and to evaluate all sources
in the Basin.

Satisfactory methods for controlling acid mine drainage have yet to
be demonstrated.  The Acid Mine Drainage Pollution Control Demonstra-
tion Program of the Federal Water Pollution Control Administration
has established a field demonstration project near Elkins, West
Virginia, where various measures to prevent the formation of acid
and to control it at its source will be tested and evaluated.  These
measures will include air seals in underground mines, drainage
diversions to keep water away from contact with sulfur-bearing forma-
tions, burial of exposed sulfur-bearing spoil material, grouting to
seal subsidence areas and make them impermeable, and grading and
revegetation of disturbed surfaces.  In connection with this field
demonstration project, pilot tests of aerial survey techniques for
locating acid mine drainage pollution sources are planned, as a
quick and cheap tool for identifying areas of toxic spoil banks      .- '
requiring special treatment.  Methods of applying digested sewage
sludge to neutralize and fertilize spoil banks to promote plant
growth, as one solution to this problem, will be studied.

At a rough estimate, there are 15,800 acres of land disturbed by
mining in the Potomac Basin needing treatment to abate pollution from
acid mine drainage.  Of these, 11,000 were distxirbed before passage
of the strip mining reclamation laws.  Surface reclamation work is esti-
mated by the National Survey of Strip and Surface Mining Damage to cost

-------
                                                                     22

    perhaps $10,000,000; plus possibly an even larger  sum for treating
    underground mines.  Seme surface reclamation work  is now being done
    by the State of West Virginia on abandoned strip mines; and their
    laws prescribe bonds to take care of at least a minimum of reclama-
    tion on current mining operations.

    Some additional pollution, in the form of sediments, also results
    from quarrying and mining of refractory materials, sand and gravel
    and other minerals in the North Branch basin.

8.  S ed im entat i on

    The Potomac River Basin discharges some 2 1/2 million tons of
    sediments annually into the tidal estuary at Washington.  About  75
    percent of this annual load originates on the watershed above the
    Washington Metropolitan area.  A program for the control of floods
    and reduction in erosion through headwater reservoirs and applica-
    tion of watershed management practices has been proposed by the
    Erosion and Sedimentation Sub-Task Force, and has  been  incorporated
    into the revised Corps of Engineer's Report.  They have indicated
    that implementation of this program could result in approximately .
    a 50 percent reduction in the amount of sediment carried to the
    estuary by the flowing river.  With respect to problems of water
    quality, the reduction is of benefit largely to the estuary.  The
    waters of the flowing river will continue to be highly  turbid during
    periods of storm and surface runoff, and the use of the river and
    its tributaries for recreation will be affected accordingly.

9.  Bacterial Pollution in the Flowing: River - Limitations  on Swimming.

    Sampling for bacterial quality of the Potonac River waters was under-
    taken by the staff of the Federal Water Pollution Control Administra-
  .  tion at 15 locations in the Potomac Basin during July,  August and
    early September, 1966,  The results of these samplings  indicate
    that, at that time the Potomac River met both the Sub-Task Force and
    the State criteria for natural swimming water quality at all  points
    between Great Cacapon and Great Falls except at Williamsport. 'The
    quality of the Little Cacapon and Cacapon rivers was also acceptable
    at this time.  The quality of Town and Sideling Kill Creeks was
    indeterminate because there was no stream flow.

    In the Shenandoah sub-basins the bacterial quality at all  stations,
    except that for the South Fork near Bentonville, Va.,  failed  to  meet
    either the Sub-Task Force or the State standards.  The  quality  at
    Bentonville was satisfactory -jn both counts.

    The samples upon which the forgoing findings are based were  taken
    at widely scattered locations during a prolonged period of  dry
    weather, when there was no runoff, and the flow of the Potomac was
    the lowest on record for several of the days during this  period.
    Thus the sampling results do not provide the data necessary to
    evaluate the bacterial water quality under higher flow conditions.

-------
                                                                         23

     This limitation is of considerable significance,  because  other  samplings
     on the Potomac, by other agencies, particularly those  taken regularly
     at the Washington Aqufiduct Water Supply intake, show that when  surface
     runoff occurs following rain, the coliform bacteria count in the
     river rises well above even the more liberal standard^ originally
     proposed by the Sub-Task Force.  This finding strongly suggests that
     much of the bacterial pollution in the river and  its tributaries
     originates on the farm lands of the basin, rather than in the waste
     discharges of the municipalities and industries,  and would  continue
     to be present in the stream even after secondary  treatment  and
     chlorination of all wastes was accomplished.  This is  in  line with
     the recent suggestion made by the staff of the Interstate Commission
     on the Potomac River Basin, based on their own sampling and analysis,
     that the bacteria found were largely of animal origin.  Mr. John
     Henderson, a consultant for the National Institutes of Health,  reached
     much the same conclusion in a study of the situation in 196l.

     The significance of the foregoing findings is that, in a  normal year,
     when frequent rain storms might be expected, the  coliform count in
     the Potomac and its tributaries is likely to be almost continuously
     above the levels currently specified for natural  swimming waters.
     It must, of course, be recognized that these conclusions  are based
     on samples taken at widely scattered locations, and are very general
     in nature.  Furthermore, in so far as swimming is concerned, it can
     not be emphasized too strongly that the conditions which  would  pre-
     vail at any specific location can only be determined after  a detailed
     investigation at that location, extending over a  sufficient period
     of time to permit a full evaluation of it.  It must also  be clearly
     understood that, in addition to the bacterial sampling, the results
     pf which require several days in each case, a thoroughgoing sanitary
     survey is required at each location being considered,  to  insure
     that no untreated waste waters are discharged within the  area.

10.   Problems of Swimming in Small Watershed Impoundments.

     Plans for the development of recreational facilities in the Potomac
     Basin also contemplate the use of a. number of the small watershed
     impoundments proposed by the Soil Conservation Service for  this
     purpose.  It has generally been thought that swimming  would be
     included among.the activities to be promoted at these  sites. For
     those impoundments located in the agricultural portions of  the  basin,
     the problem of possible bacterial pollution from  land  runoff is Just
     as important as in the case of the flowing river.  State  officials
     of the Basin, sitting in conference with the Sub-Task  Force, have
     pointed out that they have found it necessary on  several  occasions
     to close, for swimming, lakes similar to those being proposed,  be-
     cause bacterial pollution exceeded the State standards.  Also,  in
     the case of lakes, the pollution resulting from land runoff, is
     believed to be augmented by pollution from the bathers themselves,
     when large numbers of persons are associated with absence of

-------
     circulation or flow in the water.   Accordingly,  each  such impoundment
     must be evaluated separately in determining the  types  of recreational
    . activities which should be encouraged at that  site.

11.  Need for Further _Study_ of^Bacterial Standards  for  Swimming.

     The question of the significance of the bacterial  standards now being
     used in evaluating natural swimming water quality,  is  more fully dis-
     cussed in Section VI on Additional Studies. The need for a re-study of
     these standards should be weighed in evaluating  the problem of swimming
     in the Potomac.  Also the likely impact of adoption of legal  standards
     in the Potomac Basin in accord with the requirements  of the Federal
     Water Pollution Control Act should be kept in  mind.

12.  Physical Suitability of the Potomac River for  Swimming.

     In addition to bacterial quality,, the Potomac  River must be evaluated
     in terms of the recommended physical standards for swimming water
     areas.  These have to do with the clarity of the water and the condi-
     tion of the banks and bottom at each location  being  considered.

     In general, the main stem of the Potomac River,  and  a considerable
     portion of most of the tributaries below the forested mountain areas
     probably .fail to meet these standards.  The waters of the Potomac
     during the recreation season are generally cloudy, even in dry weather
     when no surface runoff occurs.  This is due in part  to the cellular
     algal growths promoted by the high nutrient content  of the water.
     As pointed out earlier, it is questionable whether this condition
     would, be much improved by introducing advanced treatment  of waste
     waters for removal of phosphorus before discharge.  Further research
     is required before a firm decision can be made on  this point, however.

     Regarding physical characteristics other than claritys each  site must
     be evaluated on its merits.  Considerable stretches  of the river are
     lined by muddy or rocky banks.  In some places the bottom is  muddy.
     Elsewhere it is irregularly rocky. Weed growths are prevalent in
     many areas.  Stumps, snags, projecting rock ledges and boulders  are
     also a hazard.  In view of the prevailaing turbidity of the  river,
     even in dry weather, these physical hazards must be carefully weighed.

     Each particular site must therefore be evaluated separately  regarding
     its suitability for swimming and other recreational uses.   It .should
     be noted, however, that West Virginia,, in addition to imposing rigid
     bacterial standards, does not advocate swimming in natural streams •
     in any case because of the obscuring hazards posed by turbidity.

13.  General Conclusions Regarding the Flowing River Portion of the Basin.

     That portion of the Worth Branch which is affected by acid mine drainage
     will remain unattractive esthetically, and unsuitable  for fish propaga-
     tion, until such time as an answer is found for the mine drainage
     problem.  It should be entirely possible5 however, to  return the
     remainder of the basin to an esthetically  attractive condition,

-------
                                                                  25

acceptable for general recreation and suitable for fish and wildlife,
by provision of adequate treatment of wastes supplemented where necessary
by diluting flow regulation releases from storage.  In general, only
limited portions of the basin are now affected by untreated or inade-
quately treated wastes.  What is required, however, is an organization
for the accomplishment of this objective, and for the continuing surveil-
ance required to keep the river clean as population increases.  This is
discussed in Section V,

Beyond the forgoing measures, the possibility of providing a suitable
swimming environment is questionable for most of the basin but in any
case must be dealt with on a local, site by site basis.  In so far as
bacterial quality is concerned, a final answer must await the research
investigations proposed in the Section VI on Policy Issues.  Provision.
of suitable physical conditions is also a matter of individual, site
by site evaluation within the standards proposed.

-------
                                                                      26

            SECTION IV - THE ESTUARINE PORTION OF THE BASIN

1.  Area Affected by Pollution.

    The tidal estuary of the Potomac extends for some 115 miles from
  .  Little Falls to the Chesapeake Bay.  In so far as water quality is
    concerned, howeverg only the upper fresh water third of the estuary,
    from about Quantico to Little Falls, presents any apparently serious
    problem at this time.  The remaining salt water portion of the estu-
    ary is, in general, satisfactory for all purposes, except for minor
    local pollution problems in coves near some of the towns, which can
    readily be dealt with.  Of course, if. present trends of pollution in
    the basin are not reversed, this situation could change, with serious
    consequence to the shellfish industry in the lower estuary.  However,
    in this report discussion of water quality problems of the estuary is
    limited to those of the upper fresh water reach.

2.  The Upper Estuary - Existing Conditions.

    The upper estuary presents by far the most serious water quality
    problem of the entire Potomac basin.  It is lined on both sides for
    much of its length by the dense urban developments of the Washington
    Metropolitan Region.  The water flowing into it from upstream already
    contains a substantial amount of plant nutrients and, during periods
    when surface runoff reaches the stream, has a high bacterial count
    and carries great quantities of silt and debris.  The estuary itself
    is the direct recipient of domestic raw sewage overflows from combined
    sewers of the District of Columbia and Alexandria during heavy rains.
    Substantial amount of organic wastes, bacteria, and plant nutrients,
    in the form of nitrogen and phosphorus, are contained in the 250 millior
    gallons of treated sewage which is also discharged into it every day.
    Filth, bacteria, organic substances, trash and sediments washed from
    the streets, yards and roofs of the region with every storm are dis-
    charged into the estuary from the numerous storm sewer outfalls.
    This pollution is further augmented by the discharges from the numerous
    pleasure craft and commercial boats which traverse the area.

    The interplay of all of these factors results in intensive general
    degradation of the upper estuary.  Oxygen levels are severely depressed
    by the biochemical oxygen demand of the organic wastes, at times
    causing fish kills.  Explosive blooms of algae stimulated by the
    nutrients, case unsightly and offensive conditions, and the periodic
    death and decay of the algae creates a secondary organic pollution
    which further depletes the oxygen in the waters of the river.  Accumla-
    tions of sediments on the estuary bottom further diminish its esthetic
    qualities.                                            •

    At times of heavy runoff, the river also presents a muddy and unattrac-
    tive appearance which, because of the stirring effects of the tidal
    currents, persists for many days.  This situation is accentuated by

-------
                                                                      27

    sand and gravel washing, particularly in the Anacostia Branch and in
    the main river at Georgetown,,which create local turbid conditions
    even during low flow periods when the river would otherwise be free
    of these pollutants.

    In addition to the esthetic and other detractions resulting from sewage
    discharges, algae, turbidity, trash, and debris, this stretch of the
    river at all times exhibits a coliform bacteria count well above the
    limits established fpr natural  swimming waters.  Until ways are pro-
    vided to reduce treated waste loads, control or treat storm runoff,
    control algae growth, reduce turbidity, and reduce the bacterial
    pollution, this reach of the estuary is not suitable for swimming and
    other water contact sports, and is considered unacceptable by the
    Public Health authorities as an auxiliary source of water supply,
    as has been proposed. ' Neither  are the low dissolved oxygen concentra-
    tions adequate for maintenance  and propagation of a good sport or
    commercial fishery.  Finally, the various factors cited contribute
    to the general degradation of the esthetic qualities of the estuary
    which are essential for an acceptable environmental setting for the
    Nation's Capital.              .

3.  Existing Waste Treatment Facilities.

    Under Section 10 of the Federal Water Pollution Control Act, the
    Public Health Service, in 1957, convened a conference of Maryland,
    Virginia, District of Columbia and Federal officials to review the
    water pollution situation in the Washington Metropolitan Region.
    As a result of this conference, it was acknowledged by all conferees
    that the Potomac estuary was badly polluted, and that extensive
    additions and improvements to the waste treatment facilities of the
    region were required.  Based on these findings the governmental juris-
    dictions comprising the region  all agree to undertake the construction
    of facilities needed to bring all waste treatment up to the secondary
    or biologic'al treatment level,  with the objective of achieving a BOD
    removal of at least 80$ from all wastes.

    The construction of the secondary treatment facilities called for
    under the 1957 agreement is now virtually complete.  However, not all
    of the plants are functioning as efficiently as intended, and in addi-
    tion, the region has already outgrown some of the plants.  Recent in-
    vestigation by the staff of the_^Federal Water Pollution Control Admin-
    istration indicates for example, that the Bi**e-~Elai&s Water Pollution
    Control Plant of the District of Columbia, through which all the
    District of Columbia wastes, and almost all of the wastes from the
    adjacent Maryland Area passes,  is not functioning as effectively as
    intended and- is achieving a removal of only about 62 percent of the
    BOD.  Disinfection by chlorination of the treated effluent is also
    inadequate during the summer months and is not provided during the
    winter.  Since this is the ms.jor plant of the region, handling about

-------
                                                                  28  .

200 out of a regional total of 250 million gallons  of  sewage per day,
the BOD and bacterial load imposed on the river  is  accordingly still
large.  The District is now planning improvements which  are designed
to correct this situation, but it is quite probable that the plant
will also have to be enlarged to handle the increased  load caused  by
rapid population growth.  Some of the other plants  of  the region,
including several at Federal installations, also require improvements
or expansion to meet the 1957 conference goal.

The specific conditions at each of the treatment plants  .of the region
is set forth in the detailed inventory prepared  by  the Federal Water
Pollution Control Administration.

Additional Facilities ai)d Programs Required.

Up-grading of the waste treatment facilities of  the Washington Met-
ropolitan region to the level required to attain an effective BOD
removal of 85 percent or more, plus effective year  round chlorination,
will make a material improvement in the quality  of  the estuary, but
will by no means be sufficient to achieve the objectives stated in
the President's message.  Additional BOD removal will  be required, or
sufficient dilution water provided to reduce the effects of the residual
BOD upon the oxygen supply in the estuary.  However, even  if the BOD
were completely eliminated from the waste discharges,  it will still be
necessary to prevent most of the plant nutrients, particularly the
phosphorus, from reaching the river if the algal blooms  are be be
controlled.

Storm water and combined sewer overflows will also  require treatment
and disinfection, and the seciraent load of the river reduced to manage-
able proportion, and otherwise controlled.  And  pollution  from boats
must be controlled.

Investigations and Studies Undertaken.

A number of investigations into these various problems were undertaken
during 1966 by the Federal Water Pollution Control  Administration  staff,
both directly and with the assistance of the Federal,  State, Regional
and local agencies and industrial representatives.   These  investiga-
tions are not yet all complete but most of them  have progressed to
the point where it is possible to give some tentative indication of
the kind and magnitude of the programs required  to  deal with  the con-
dition described.  The tentative findings of these  investigations  are'
set forth in the following sections.

Reduction of Nutrients for Algae Control.

Of all the pollution problems of the estuary, algal blooms stemming
from excessive nutrients is perhaps the most serious and presents  the
greatest difficulty.  The result in the accumulation of large mats of

-------
                                                                    29

algae which are .unsightly.  The algae collect in noisome windrows
on the shore, creating obnoxious condition, and their decay creates
a secondary organic pollutional effect in the estuary of substantial
proportions with accompanying reduction in oxygen content of the
water.  A principal controllable offender in this chain of events is
phosphorus, the presence of which is one of the essential elements
for the growth of the algae.  Observations in the Chesapeake Bay
estuarine system indicate that if the dissolved organic Phosphorus
concentration is kept below 0.1 mg/1, nuisance algal blooms do not
generally occur.  Even if phosphorus is not the primary nutrient
responsible for the excessive algal growths, however, it can be used
as an indicator of the presence of other algal growth factors.

While some phosphorus is brought down to the estuary by the .flowing
river, by far the largest amount is contributed by the sewage treat-
ment plant effluents.  Approximately 8 tons per day of phosphorus
are discharged to the estuary with these effluents, and the phosphorus
concentration in the estuary reaches a peak of 5-parts per million in
the vicinity of Marbury Point.  This is 50 times the 0.1 ppm believed
to be the desirable upper limit of phosphorus concentration.  Phos-
phorus concentrations above 0.1 ppm extend generally from Theodore
Rosevelt Island to below 'Quantico.  The area of undesirable algal
blooms extends from Memorial Bridge to Quantico.

Phosphorus is not normally removed from sewage in significant quantities
by the usual secondary treatment process.  Other means must be found,
therefore, for either preventing it from reaching the estuary, or of
reducing its concentration after it reaches the estuary, if the algae
blooms are to be controlled. This may be done by one or more of the
following ways: (a) dilution of the wastes by stream flow regulation,
(b) diversion of the treated wastes out of the basin, and disposal
thereafter by any of several possible ways, (c) diversion further down-
stream to dilute the wastes in the larger area of the lower estuary,
(d) renovation and recircultion of the waste waters for direct re-use,
(e) additional treatment specifically to remove the phosphates,
(f) dilution after tertiary or advanced treatment, and/or (g) a combi-
nation of methods.

All of these alternatives were investigated.  In doing so, the possi-
bility of using the upper estuary as an auxiliary water supply for
the Washington area was kept in mind, and the probable effects of
such diversion upon the utility of the estuary for this purpose was
determined by systems analysis methods, using a mathematical model.

6 (a)  Dilution by Flow Regulation.  Analyses and computations indicate
that, while substantial amounts of flow regulation storage were pre-
viously recommended in the 1963 Corps of Engineers report for the
purpose of maintaining the organic waste assimilation capacity of the
estuary, no reasonable quantity of seasonal flow regulation releases
from upstream storage is capable-by itself of lowering the total dis-
solved phosphorus concentration in the critical section of the upper

-------
                                                                  30

estuary to or below the desired 0.1 mg/1 level.  This  vould be  true
regardless of the level of phosphorus concentration in the incoming
water.  In view of this find-ing, reliance on flow regulation as  the
principal means of reducing che phosphorus concentration in the
estuary is not feasible.  As indicated below, however, some flow
regulation can be used in combination with other processes and
alternatives as a means of controlling the dissolved phosphorus
concentration level in the er.tuary.

6 (b)  Diversion Out of the Basin.  With respect to diversion  of the
wastes out of the estuary, four methods of disposing of them after
diversion were studied.  These are (l) disposal in the Atlantic  Ocean,
(2) disposal in Chesapeake Bay, (3) injection into underground strata
and (h) disposal by surface spreading and irrigation.  Pre-requisite
to all but the first is the requirement that the wastes' first  be
given a high level of secondary treatment.  For ocean disposal,  a
lesser degree of treatment plus chlorination might be sufficient,
but specific investigation and study would be required for confirmation.

6 (b) (l)  Disposal to the ocean is by far the most costly of  the
alternatives, with estimated capital costs of $350 million and
annual operating costs of $16 million.  On costs alone, this alter-
native must at least for the present, be ruled out.  It is, however,
engineeringly feasible, and does provide a possible long term  solution
to the algal problem-.

6 (b) (2)  Disposal in the Chesapeake Bay appears to be the  least
costly of the four alternatives.  Capital costs are estimated  at
about $100 million, and annual operating costs, mostly for pumping,
at $2 million.  While, as pointed out below, advanced treatment, for
removal of nutrients, is cheaper then disposal to the Bay, the  costs
are sufficiently close that this solution should not be ruled  out on
costs alone.  But when possible effects of such discharges upon the
Bays as well as upon the Potomac itself, not yet fully understood,
are taken into account, it becomes apparent that this solution would  .
require a great deal more study before a firm decision to adopt it
could be made.  Possible detrimental effects upon the ecology  of the
Bay, coupled with the probability that the algal bloom problem would
merely be transferred to a number of square miles of the bay surround-
ing the end of the outfall pipe, with attendant esthetic nuisance problems,
suggests that, within the forseeable future, the Bay would be  just as
unacceptable as the Potomac River as a sink for nutrient rich wasters.

6 (b) (3) and (U)  Alternatives (3) and (U) are intermediate in costs.
Injection into the ground would involve an extensive field of some 300
wells spread over some 20 'square miles of Southern Maryland,  at an
estimated capital cost of $120 million.  For the spreading and irriga-
tion schenes, land areas required would vary anywhere from 6 to 100
or more square miles depending upon the arrangement, and cyclical

-------
                                                                  31

. timing of whatever operation was  found most  feasible.   Capital costs
 are estimated at about $1^0 million.   For both alternatives  annual
 operating costs, mostly for pumping,  would also be high, with the
 injection scheme showing the higher  cost. While  there  are a number
 of technical draw-backs to both of these  schemes  which  must  be re-
 solved before either of them could be adopted with confidence, it
.would appear that, for the purposes  of this  study, they must also
 be disgarded in favor of the less costly  alternative  of advanced
 treatment, which, in addition to  removing some 90 percent of the
 phosphorus from the waste effluents,  would,  by further-reduction
 of other contaminents, also make  the  estuary more suitable as an
 auxiliary water supply for the Washington region.

 The schemes described above for diverting waste waters  from  the
 estuary have been rejected primarily  on the  grounds of  costs. How-
 ever, in addition to costs, other factors mitigate against diversion.
 The removal of 250 million gallons per day (present sewage discharge)
 and ultimately of perhaps one (l) billion gallons per day of fresh
 water from the upper estuary during  periods  of extreme  dry weather
 when there is little direct flow  from the river,  could  cause an
 undesirable ecological imbalance  which might have an  adverse effect
 upon the finfish and shellfish resources  of  the estuary.  This possi-
 bility should be carefully examined before any decision to divert so
 much fresh water from the estuary is  agreed  to.  Secondly, as dis-
 cussed below, diversion of the waste  waters  at times  of extreme low  .
 flow would cause a salt water incursion  to  such  a degree that the
 upper estuary could not be used as a  source  of water  supply. For
 these reasons also, it appears desirable  to  deal  with the waste
 water disposal problem within the confines of the basin.

 6 (c)  Diversion of Wastes to the Lower Estuary.  Diversion  of the
 wastes to the lower estuary is roughly comparable in  cost to tertiary
 treatment, with capital costs estimated at about  $62  million.  Like
 diversion to the Bay, however, it would simply mean that-the algal
 bloom problem would ultimately be transferred to  that area.  In
 addition, the effects upon the ecology of the lower estuary  are
 unknown, and the advantages of using  the  upper estuary  as a  possible
 auxiliary water supply would be lost  because of probable salt water
 intrusion.  Accordingly, while some  diversion to  the  lower portion
 of the upper estuary will be required, as described below, in con-
 junction with both advanced treatment and flow regulation, diversion
 to the lower, salt water estuary  as  a separate solution to the problem
 has also been rejected.

 6 (d)  Renovation of Wastes and Re-circulation for Direct Re-Use.
 Another alternative means of removing the wastes  from the estuary
 is that of recirculation for direct  re-use of the waste water after
 appropriate treatment.  Direct re-use is  technically  feasible.  How-
 ever, it must be emphasized that  a variety of special precautions
 would have to be taken at this time  in order to order to provide
 complete and absolute assurance of safety in using the  water so
 produced.  The Public Health Service  Drinking Water Standards state

-------
                                                                  32

that "Drinking water shall not contain impurities in concentrations
which may be hazardous to the health of the consumers	.   Substances
which may have deleterious physiological effect, or for which physio-
logical effects are not known, shall not be introduced into the system
in a manner which would permit them to reach the consumer."  Thus, -at
this stage of development of the processes involved, significant
"over-design" would have to be incorporated along with a variety of
fail-safe controls and detailed analytical monitoring.  These require-
ments, controls, and monitoring services can be accomplished but at
higher costs than will be possible after the completion of research
and development studies now underway.  In addition, it must be remembered
that the substances removed from the. waste water must be disposed of
outside the estuary area, if the.estuary is to be made suitable for
the other contemplated uses.  This would involve additional costs.

At this time, economic rather than technical 'considerations are likely
to be more of a limiting factnr in determining the feasibility of
renovating wastewater for pub Lie water supplies in any given situation.
Since it is anticipated, however, that renovated water will, for reasons
of cost, always be blended into an existing water supply from a con-
ventional source when available, renovation would not be a completely
separate solution.

With respect to applicability of waste water renovation techniques to
the effluent from the Water Pollution Control Plant of the District of
Columbia, the above general statements would hold true.  Clearly, how-
ever, the actual process sequence involved, the operating conditions,
the degree of over-design, the method of reintroducing the renovated
water into the water supply distribution system, the method of dis-
posing of sludges, etc. , would all have to be examined in a detailed
engineering survey at the specific site and the specific situation
before reliable cost estimates for such system could be made.

Costs of producing water by this scheme would approximate 17 cents  •
per thousand gallons, about three times, that of providing advanced
treatment of the waste waters before discharge to the upper estuary,
where they could be used as a possible auxiliary raw water supply
source.

After due. consideration _of the forgoing factors, the Sub-Task Force
believes that there is no inherent benefit at this time in direct
re-use over advanced waste treatment and discharge to the upper
estuary for possible use in an emergency.  Also,, the fact that such a
process would be required for only part of the year would mean that
there would be an economic loss in that during the remainder of the
year the river would supply all needed water and the extra treatment
processes would remain idle.

-------
                                                                  33
Direct re-use would also cost more because of the necessity of con-
structing pipelines from the waste treatment plants to. the water
supply system intakes at Dalecarlia and. elsewhere, or constructing
additional small water treatment plants near the waste treatment
plants.   Use of the upper estuary would partially eliminate the
need for these pipelines or additional treatment plants,  since the
estuary would serve the pipeline's purpose.  In the latter case,
treatment costs would also be less than for direct re-use, since the
natural purification ability of the upper estuary could be used, and
accumulated excess flows from upstream would not be lost.

It also must be assumed that from the public health standpoint as
well as from an esthetic point of view, as long a time period as
possible between the time the waste is discharged and the time it
is put into the water distribution system is desirable.  The use of
the upper estuary plan would give a 3 to 8 day time interval, while
there would be essentially no time interval with direct re-use,
Because of the above considerations, direct re-use was not considered
further.

6 (e)  Additional Waste Treatment for Removal of Phosphorus.  At the
request of the Sub-Task Force, staff of the Federal Water Pollution
Control Administration during 1966 investigated the possibility of
removing a substantial portion of the dissolved phosphorus from
secondary treatment plant effluent.  The results of this  investiga-
tion indicate that it is possible to accomplish this objective within
reasonable costs.  The studies indicate that 90 percent of the phos-
phates may be removed by a coagulation and precipitation  process
involving application of lime and iron salts to the secondary effluent
in a terminal sedimentation basin. -Cost of the process,  based on the
large volumes to be treated at the Blue Plains Plant, are shown in
the following table.  For the smaller plants of the metropolitan
region, the unit costs would be higher.
    Total Cost of Removing Phosphates in Cents/1000 Gallons
                                 250 meed
350 mgd
                                                                mgd
Capital Amortization
Operating and Maintenance
Cost of Chemicals
     Lime
     Iron Salt
Cost of Sludge Disposal
  by Barging to Sea
     Total Cost

Savings when Recalcining
  of Sludge in Use
Total Cost with Recalcining
                                                2.18
               2.18

-------
It is assumed that 90 percent of the phosphates would be removed by
the lime treatment discussed: above.

6 (f)  Dilution of Residual Phosphorus by Releases from Storage.  As
indicated above, tertiary treatment would remove about 90 percent of
the dissolved phosphorus in the sewage effluents, leaving a phosphate
content of 0.5 ppm in the effluent as discharged.  However, the whole
Chesapeake Bay System is, and apparently always has been, an enriched
body of water, with a present background phosphate content of about
0.05 ppm, which is one half the allowable maximum if algae blooms are
to be controlled.  The waters discharged to the estuary by the Potomac
River have an average annual total phosphate content-several times
the maximum allowable, but much of this is bonded to soil particles
and is not available for algae growth.  The phosphorus content, during
dry weather when sediments are absent, drops to below 0.1 ppm, thus
further diluting the phosphorus discharged to the estuary in the
sewage effluents.  It appeared, then, that if sufficient dilution
water could be made available from upstream storage facilities
during periods of high algae growth, the nutrient content of the
estuary might thereby be reduced to acceptable levels.  Further
investigations along these lines revealed, however, that while
some improvement could be achieved through additional dilution,
complete correction of the situation, based on 1985 conditions,
could not be achieved by this means.  Additional-remedial measures
are required.

6 (g)  Multiple Attack Methods.  Optimization studies by staff of
the Federal Water Pollution Control Administration indicate that
a combination of advanced waste treatment, flow regulation releases
from upstream storage, and diversion and dispersal of treated wastes
through multiple outlets for some miles along the lower portion
of the upper fresh water estuary could be expected to accomplish the
the desired objective.  This does not mean that the estuary would
be entirely free of algae.  As noted, the estuary and the Bay
already have a relatively high background phosphorus content.
During warm weather, the plankton growth in the rich waters of the
Bay and estuary.is already sufficient to reduce visibility in the
water by a substantial amount.  Little, if anything, can be done
about this situation.  But it is believed that the remedial
measures cited above would prevent the unsightly and noisome mats
of .algae, now so troublesome, from accumulating.

Presented in the table following are the results of these investigations,
They are based on the 1985 projections of population, water supply
requirements and waste water discharges which were used in the 196"3
Corps of Engineers report.  It should be noted that the required
releases decrease as diversion is  increased.  The least cost com-
bination would require from- 600 to 1000 cfs of flow releases from
upstream impoundments plus 250 mgd of diversion  at a time when total
waste discharges would amount to 350 mgd.

-------
                                                                   35

 For 19o5 conditions,  lesser amounts of diversion  and  dilution would
• apparently be required,  with indications that one or  the  other  alone
 might be sufficient.   However,  more refined studies will  be  required
 before a definitive decision can be made on this  point.

-------
                                           POTOf(   ESTUARY    .            .
                             ALTERNATE SYSTEMS FOR WATER QUALITY CONTROL
              Based on 1985 Projections .and 85% BOD Removal by Secondary Waste Treatment
                                         (Preliminary Results)    -         •
System
Annual
Treat. - % Diversion- Add. Cost.
removal of MOD Flow Release
phosphorus cfs . x 10 "
1 .
2
3
U
5
6
7*
8*
9*
10**

11
0
90
90
90
90
90
90
90
90
90

90
0
0
0
o
.0
0
93
120
180
250
*
250
0 0
0 5.6U
500 6.5
• 1000 „ 7.7 v
1500 . 9'. 8 ;:
1870 12.6
1870 lU.l
1500 11.7 ' •
,1000 . 10.5
600 - 10.6

500 10. If;
Miri. - Max.
DO Total P
mg/1 . mg/1
1.3 1.71
3.8 . 0.25
U.O . . , .. 0.22
. 1*.5 , 0.18
i».-9 ' 0.15
5.2 0.13-
5.1 0.10
5.2 0,10
"., 5.U. 0.10
5.3 0.10

5.0 0.13
 *  Systems which produce desired quality results.
**  Most economical system which produced desired quality results,
o\

-------
                                                                      37
7.  Further Reduction of BOD for Control of Oxygen Depletion
    The discharge of organic wastes to the estuary5 together with organic
    pollution caused by decay of masses of algo.e, now causes a serious
    oxygen depletion in the estuary, with attendant fish kills on occasion.
    Treatment of all wastes to remove at least 8>5% of the organic substances
    (BOD), would do much to ameliorate this situation, but would not  com-
    pletely correct it.  The 19&3 report of the Corps of Engineers indicated
    that releases from storage in Seneca Reservoir sufficient to maintain  a
    flow into the estuary at all times of about HOOO cfs were therefore re-
    quired in order to maintain an acceptable oxygen level in the estuary.
    These figures were based on studies by the U. S. Public Health Service
    for 1985 conditions.

    The program for tertiary or advanced treatment of sewage effluents  for
    phosphorus removal, recommended in the preceeding section, if adopted,
    would have the added advantage of also removing about 50 percent  of the
    BOD remaining in the waste discharges after secondary treatment.  With
    this additional reduction in BODS it is believed that the oxygen  deple-
    tion problem in the estuary would be largely corrected.  Under these
    circumstances, releases from storage for flow regulation for control of
   . Organic pollution in the estuary under 1985 conditions would not  be
    needed.  For the year 2010 conditionss however', some releases for BOD
    control might be required.  If so the releases for dilution of phosphorus
    might be adequate.  However., additional • studies of conditions to  be
    expected after 19^5 should be undertaken before final decision on the
    need for such releases are made.  It is observed, however, that the
    much smaller volume of flow regulation releases required for dilution
    of nutrients up to I9o5 might be provided from some of the more remote
    upstream reservoirs proposed. If so, storage in the proposed nearby
    Seneca reservoir for flow regulation would not be required.

    Mechanical methods of re-aeration have also been proposed as a means
    of maintaining desirable oxygen levels in the estuary.  Some preliminary
    investigations by staff of the Federal Water Pollution Control Admini-
    stration indicate that such a process might cost from _26o to h60  dollars
    per ton of dissolved oxygen added to :the water, depending on depth,
    and size of operating unit.  Application of the process to the Upper
    Estuary would require considerable study and investigation, because of
    the complex character of the estuary and its currents.  The Sub-Task
    Force has not been able to pursue this problem any further and there-
    fore has no basis upon which to make economic comparisons with other
    solutions.  It is observed, however, that the suggested solution  to
    the nutrient problem would probably make it unnecessary to give
    further consideration to mechanical re-aeration.

8.   Elimination of Pollution from Combined and Storm Sewer Overflows

    The provision of complete treatment and disinfection of all waste
    waters discharged from the sanitary sewers of the metropolitan area

-------
                                                                   38

vill not completely eliminate the discharge of polluting substances
into the upper estuary.  About 15,000 acres in" the District of Columbia
and a much smaller area in Alexandria are served by combined sewers
which carry both storm water and domestic sewage.  During dry weather,
the flow from the sewers is normally all carried to the treatment plants
for processing before discharge to the river, provided the overflow
regulators are functioning properly.  During rainy weather, however,
that portion of the mixed storm water and sewage flowing in the combined
sewers which is above the capacity of the interceptor sewers leading to
the treatment plant to carry is by-passed directly to the river, thus
carrying a considerable volumn of raw sewage with it.

Up to now the only practical means of correcting this situation has
been to construct separate sewers to replace the combined sewers.  The
District of Columbia has been spending from 1 to 2 million dollars per
year on this program but reports that it will require about $350 million
and many years to completely eliminate the combined sewer overflows by
this method.  Alexandria has so far done little to eliminate its com-
bined sewers.  Research and investigations into other methods of dealing
with combined sewer flows are now under way including study and demon-
stration of holding tanks and other devices.

Storm water alone also carries considerable amounts of pollution to the
river.  Studies of storm water quality conducted by the Public Health
Service in selected urban areas indicate that the storm water runoff
from the average urban area contains substantial amounts of BOD. Fecal
coliform and fecal strepticocci bacteria are also present in numbers
indicative of a high degree of pollution.  Thus, storm water, by itself,
is indicated to be a serious source of river pollution.  When combined
with the raw sewage overflows from combined sewers, these flows become
even more contaminated and carry even greater amounts of organic and
bacterial pollution.  Discharge, of untreated storm water into the
estuary is therefore a serious, if intermittant, deterent to swimming
and water sports, and seriously reduces its esthetic quality.

The only apparent solution to the storm water and combined sewer over-
flow problems, at the present time, is collection, treatment, and chlorina-
tion of these flows before discharge.  Treatment should probably include
some form of coagulation and settling in a detention basin if a satis-
factory quality is to be achieved.  Such impoundment and treatment
would also reduce the heavy loads of sediment, trash, and turbidity
carried into the river by storm water but disposal of the accumulated
materials would present a problem of considerable magnitude.

The volumes of storm water which must be dealt with in a metropolitan
area such as Washington at times of heavy rainfall, are very large.  For
intense storms, total volumes on the order of 6 billion gallons are
involved.  The collection, impoundment, and ultimate treatment and
chlorination of such volumes presents substantial construction and
operating problems.  Very rough estimates based on extremely sketchy
information and computations indicate a total cost for the necessary

-------
                                                                      39

    works on the order of $2 billion.  A serious problem,  however,  is
    that of finding suitable sites for the required detention basins or
    other facilities.  For example, at 10 feet depth, a total of some
    1,500 acres of detention basins on the District and Maryland side,
    and some 500 acres on the Virginia side of the River would be required.
    A total of about 1^0 potential sites where facilities might possibly
    be constructed have been identified.

    Provision of suitable treatment facilities to handle storm water over-
    flows would, of course, also eliminate the need for separation  of storm
    and sanitary sewers5 since combined sewer overflows could be detained
    and treated along with the storm sewer discharges.   Sludges and sedi-
    ments collected in these facilities would, of course,  need further
    treatment.  If" total storm water is not to be dealt with, however,
   'then some means must be found to deal with the combined  sewer  flows
   . alone.

    Methods of dealing with storm and combined sewer overflows are  now
    being studied and demonstration grants are being made available by
    the Federal Water Pollution Control Administration for design and
    construction of various pilot and experimental types of facilities
    for dealing with this problem.  Research and development is only in
    its earlier phase, however, and practical solutions to this whole
    problem must await further effort.

    Until then, the upper estuary of the Potomac will continue to receive
    large and possibly increasing, amounts of organic,bacterial and other
    polluting substances with every storm.

9.  Sediirientat i on

    The Potomac River presently discharges into the upper estuary about
    2 1/2 million tons of sediments annually.  Some 75 percent of these
    sediments originate on the watershed upstream from the proposed Seneca
    Dam site.  Most of the remainder come from the Washington metropolitan
    area, which comprises only about 2 percent of the watershed.  These
    latter sediments are produced largely by erosion from subdivision,
    highway and other construction in the urban and suburban areas.

    The Erosion and Sedimentation Sub-Task Force, in a statement.prepared
    for the Water Quality Sub-Task Force, states that their recommendations
    include provision of technical and financial assistance to States,
    local organizations and landowners and operators to install sedimenta-
    tion and erosion control measures on the watershed, including a large
    number of headwater reservoirs.  The recommendations also include pro-
    visions for erosion control in urban and suburban areas, including 800
    sediment detention basins together with mulching, seeding, sodding and
    other practices.  The entire program is expected, when completed, to
    reduce the current rate of sedimentation in the estuary by about ^5 to 50
    percent.  Some further reduction of sediments reaching the estuary
    can be expected., however, d~;e to the trapping effect as additional

-------
                                                                       Uo
reservoirs  are  installed.  On this score, it should be noted that a
dam of sufficient  size  at Seneca would, trap almost all of the sediments
originating above  that  point.

The Sub-Task Force indicates„ however, that while it recognizes that
from a water quality standpoint further reduction in the sediment load
is desirable, they feel that, due to physical, economic, and institu-
tional considerations,  it is not feasible at this time to attempt to
develop additional measures which might be able to further reduce ero-
sion and  sedimentation.  The recommendations of the Sedimentation Sub-
Task Force  are  set forth in more detail in their report.

•The present rate of sediment deposition in the upper estuary now re-
quires annual dredging  to maintain the navigation channels in the
Washington  area.   Much .of this dredging could be eliminated if Seneca
Reservoir were  constructed and erosion control practices at construc-
tion sites  in the  metropolitan area instituted.  To gain some idea of
the relative costs involved, the Water Quality Sub-Task Force requested
the Corps of Engineers  to develop the alternative costs of dredging
versus entrapment  of the sediments in a Seneca Reservoir.  Thes.e costs
are set forth in the following tables.

-------
ESTUARY
Sediment Inflow to Estuary
from from
1.
2.
3.
U.
5.
6.
7.
Seneca
tons/yr
2,100,000
1,130,000
730,000
590,000
1(8 0,000
380,000
250,000
Local Areas Total
tons/yr tons/yr
263,000
263,000
263,000
263,000
263,000
263,000
263,000
2,363,000
1,393,000
993,000
853,000.
7 to ,000
6U3.000
513,000
Cost for
Dredging
$/torT
3.00
3.00
3.00
3.20
3.^0
3.75
3.75
Annual
Dredging
Cost
$
7,090,000
U, 180, 000
2,98n.ooo
2,730,000
2,530,000
2,UlO§000
1,930,000
Annual
Cost
Seneca
*
0
1, 1(80,000 '
2.non,000
2,350,000
2,680,000
3,090,000
3,850,000
Total Annual Cost for
Annual Sediment Removal
Cost
$ $/ton
7,090,000
5,660,000
^,980,000-
5,080,000
5,210,000
5,500,000
5,780,000'
3.00
2.70
2.37
2.1*2
2j48
2.62
2.75
                                                               .fc-
                                                               H

-------
SENECA RESERVOIR

1.
2.
3.
i*.
5.
6,
7.
Sediment
Storage
	 hfYj, 	
0
63,000
89,000
98,000
105,000
112,000
120,000
Settling
Pool
Storage
JUF. 	
0
90,000
200 juuO
300,000
1(00,000
550,000
92,000
Surcharge
_JbI^_.,
0
183,000
•l6.-j,000
183,000
1.83,000
183,000
183,000
Total
Storage
	 _JU£.__
0
336,000
1*72,000
581,000
688,000
8^5,000
. 1,223,000
Total
Cost
$1000
_JL
0
29,500
Ho, ooo
Vr,ooo
53,500
61,800
77,000
Average
Annual
Cost
$1000
^ 	 $__
0
1,1*80
2,000
2,350
2,680
3,090
3,850
Trap
Eff .
of
I"
0
1*6
65
72
77
82
88
Sediment
Trapped by
Reservoir
Tons/yr
0
.970,000
1,370,000
1,510,000
1.620,000
1,720,000
1,850,000
Sediment
Passed to
Estuary
Tons /yr .
2,100,000
1,130,000
730,000
590,000
.1*80,000
380,000
250,000
                                                                ro

-------
                                                                  1*3

The least cost method of dealing with the annual load of sediment
deposited in the estuary is shown to be a combination of dredging
and detention in Seneca Reservoir.  However, the savings in cost
over that of dredging alone is only about 20 percent.  It is quite
likely therefore that the detriments and social costs associated  ;  :
with constructing a single purpose Seneca Reservoir as a sediment
trap would be considered as jmore than offsetting this small saving.
Of course, if a multiple purpose reservoir at Seneca were constructed,
its use as a sediment trap, might be placed in a much more favorable
light.                                         .

The reduction of sediment originating in the metropolitan area will
require that the States and the local governments of the region
adopt and enforce appropriate statutes and ordinances requiring
the application at construction sites, of the detention and surface
runoff control measures proposed by the Erosion and Sedimentation
Sub-Task Force.

For the long run, a.far more serious effect of sedimentation in
the upper estuary is the gradual shoaling of this water body.  For
over 150 years, dredging operations have had to be undertaken
periodically to eliminate the mud islands and shoals which have
from time to time appeared.  Thus, East and West Potomac Parks,
Boiling Airfield, the National Airport, and the Virginia approaches
to the lUth Street Bridge have all been built up with material
dredged from the estuary.  This shoaling can be expected to
continue, although at a much slower pace if the measures proposed
above are adopted.

Extensive reaches of the upper estuary on both sides of the channel,
for a number of miles downstream from the Memorial Bridge, have
been filling with sediments over the years until the water is now
only from one to four (l to H) feet deep.  These areas are of little
value today for navigation, either by pleasure or commercial craft,
and in a few years will be altogether useless.  Estimates by Drs.
Wolman, Geyer and Pyatt, in their 1957 report to the Interstate
Commission on the Potomac River Basin, indicate that, at the present
rate of deposition, the estuary from Chain Bridge to Fort Foote will be
completely filled in less than 50 years.      1t

Salvaging of the upper estuary for navigation, recreational boating
and preservation of the general esthetic environment of the city
will require the annual dredging of one or two million tons of
sediments per year, and in addition, the removal of some tens of
millions of tons of sediments which have been accumulating in the
shoal areas over several decades.  This is a large and costly
program.  One of the most serious problems involved is that of
where to dispose of this larf.e volume of dredged material.  The
Metropolitan V.'ashington Council of Governments, through its Regional
Sanitary Advisory Board and a firm of consulting engineers, is now

-------
     engaged, in a study of the solid wastes disposal  problems  of the
     region.  This study vill include a more detailed analysis of the
     dredging and disposal of these accumulated sediments,  including
     estimates of the costs of doing so, and some indication of possible
     disposal sites.  The report on this study, when  completed, should
     throw more light on this difficult problem.

10.  Turbidity

     At times of storms, the waters reaching the upper estuary of the
     Potomac will present a dis'colored and muddy appearance in spite
     of all that can be done to control erosion and sediment transport.
     This condition is due to the nature of the Piedmont  soils from
     which the sediments are derived.  The very fine  particles of the
     soil do not settle readily and are carried past  the  detention
     structures.  The result is that, even with excellent sediment
     control, the effluent, while containing very little  actual
     sediment, is still muddy in appearance.  Upon reaching the
     estuary, this turbidity persists for days because of the  stirr-
     ing action of the tidal currents, and even extends into the
     lower estuary.  If the estuary is to be made at  all  times
     suitable esthetically and physically for swimming, general
     recreation and environmental improvement, additional measures
     will be required to deal with this persistent turbidity.

     Polyelectrolytes have been proposed for this purpose.  These
     coagulant aids consist of synthetic compounds with a. very high
    . molecular weight.  When applied in relatively small  amounts,
     they promote the agglomeration and settlement of suspended
     material not previously removed.  On the scale proposed,  this
     process is as yet untried.  A recent test application of  these
     substances in the Rock Creek watershed substantiates the  belief,
     however, that this procedure might provide a feasible means of
     clearing the estuary when needed.  The Rock Creek experiment  is
     being continued by the Dow Chemical Company,makers of the poly-
     electrolytes, in cooperation with the Maryland National Capital
     Park and Planning Commission.

     Estimates prepared for the Water Quality Sub-Task Force by the
     Dow Chemical Company indicate that application of polyelectrolytes
     to the Potomac Estuary over a four month recreational season  would
     cost somewhere between 1 and 1-1/2 million dollars per season.

     If polyelectrolytes are to be applied, it  is most essential that
     the nutrients which promote the growth of algae in the.estuary
     also be removed.  If this is not done, the increased penetration
     of sunlight permitted by the clearer water could cause a  great
     increase in algal growth.  In fact, the resulting cloudiness
     and unattractive appearance of the water which would presently
    . occur as a result of the increased algal growth would probably
     be worse than that for which the electrolytes were used.   There-
     fore, unless the nutrient problem in the estuary is adequately

-------
     dealt with,  there would be little point  in trying to clear up the
     suspended sediments.   The effects of  the settled fine  sediments
     upon the bottom life  of the estuary would probably also require
     investigation.

     Large quantities of sand and gravel are  dredged from the upper
     estuary, expecially along the Maryland shores.  Much sand and
     gravel is also  mined  in or near the streams  discharging into the
 .-.•  tidal portion of the  Anacostia River. The washing of  these important
     construction materials results in considerable turbidity and creation
     of a muddy appearance in both the Anacostia  and the Potomac.  This
     condition would also require correction  if turbidity is to be
     eliminated.   One possible approach to this problem would be to re-
     quire these sand and  gravel companies to treat their wash water
     with polyelectrplytes in order to cause  the  sediments  to settle
     quickly.  Some  research and experimentation'would probably be
     required, but,  on the assumption that a  suitable technique could
     be developed, this requirement might  be  made a condition of licensing
     these operations9 under the State water  pollution control laws.

11.  Effects of Accumulated Sludges and Bottom Muds.

     The upper estuary, for some distance  above and below Blue Plains,
     was believed to be covered with a-blanket of sludge and sediments,
     resulting from  the discharge into the river  over a long period of
     time of large quantities of untreated, or partially treated wastes,
     inter-layered with the sediments brought down from up  river.  These
     deposits cover  about  10 square miles. It was thought  that the up-
   •  take of oxygen  by these deposits 'placed  an additional  burden on
     the oxygen content of the river, in the  slow process of bacterial
     digestion and conversion to inert material.  Measurements and
     study of these  deposits were therefore undertaken by the Federal
     Water Pollution Control Administration in October, 1966.  This
     was accomplished by means of a series of. core samplings taken at
     intervals over  the 13 mile reach from Marshall Hall to the mouth  •
     of the Anacostia.

     In general,  these samples showed that the deposits are mostly muds
     and silts, interspersed with thin layers of  what appear to be de-
     composed sludge.  The evidence of sludge was fairly well confined
     to the eastern  side of the river from the Naval Research Laboratory
     Dock downstream to Oxon Creek.  Sludge banks, of 6 inches to 1 foot
     depth were,  however,  found on the top layer  of the deposits  only  in  the
     vicinity of and downstream from the Blue Plains treatment plant.

     From these observations it can be tentatively concluded that no
     extensive sewage sludge deposits were evident in the area sampled,
     at the time of  sampling.  This cruise was made after a month in
     which abnormally high rainfalls had been recorded, and some  flushing,
     as well as deposition of new alluvium, may have occurred.

     It would appear from  this reconnaissance survey that sludge  deposits

-------
     as such are nowhere near as extensive as at first  thought.  The  effect
     of these deposits on the oxygen of the river was determined,  and is
     incorporated into the calculations.   It appears that physical removal
     of the sludges should not be necessary but  final decision should await
     completion of improvements in treatment of  wastes  at the Blue Plains
     Plant.  If a decision is made to dredge the shallower  areas of the estuary
     to improve their utility for boating as discussed  in (9) above,  the prob-
     lem of what to do about the sludge deposits will,  of course,  have been
     largely solved.

12.  Pollution from Boats and Marinas.

     The volume of wastes discharged from vessels, boats and marinas  is
     rapidly increasing and adds 13 the Nation's pollution  problems.  •
     Most recreational craft have no-waste treatment facilities.   Galley
     and toilet  wastes are discharged directly  into the water, giving
     concern to public health and pollution control authorities, conser-
     vationists, and the boat and marina industries themselves.  Boating
     is, in effect, degrading the v;-ry waters needed to  maintain it.  This
     is particularly true of the Chesapeake Bay  and the Potomac River in
     the Washington, D, C. area, one of the fastest growing communities
     in the United States.

     A number of marinas line the shoreline of the Potomac  in the  vicinity
     of the District of Columbia.  At the Columbia Island Marina,  in  the
     Pentagon Lagoon, 665 boats are berthed.  It is one of  the  largest
     powerboat marinas on the "east coast.  It is owned  by the National
     Park Service and run by Government Service  Inc. for the public.   For
     the sailing-only sailor there is the Washington Sailing Marina down-
     river toward Alexandria, under the same Government Service management.
     Other clubs or•Yacht basins include the Fort McNair Yacht  Basin, the
     Old Town Yacht Basin, the Capital Yacht Club off Mai^Avenue  and the
   •  biggest and newest of the local boating places, the Thompson  Boat-
     house run by the National Park Service.  .

     Sanitary facilities are inadequate at most  of these  installations
     and the sanitary conditions of the environment are deplorable, with
     no regulations governing the discharge of wastes  from  boats.   This
     is particularly true at the Pentagon Lagoon, Fort  McNair Basin and
     the Capital Yacht Club, where some people live aboard  their boats
     all year long.  Since these installations are on  government property
     and leased by the Government to operators,  they will  come  under
     the Federal Water Pollution Control Act, Sec. 11,  covering the
     Control of Pollution from Federal Installations.

     The elimination of pollution from boats and marinas  requires
     appropriate pollution control facilities.  To date 27  States  have
     enacted boat sanitation laws and some 15 States have  legislation
     pending.  The States of Virginia and Maryland are  among those which
     have reviewed and are considering adoption of the  Rational Association '
     of State Boating and Law Administrators "Model Law".   However, treat-
     ment devices which merely macerate and chlorinate  sewage  discharges

-------
     from boats are not considered, acceptable by many  State  officials.
     The District of Columbia and the State  of  Maryland  do not  consider
     them acceptable in their present stage  of  development.  Washington,
     D.  C. and Alexandria, Virginia are  navigable  ports  and  vessels using
     these ports may be coastal or transoceanic.   Effective  control of
     such vessels including our own Navy vessels will  have to be  done
     under Federal regulations, not State regulations.

     Water pollution problems caused by  boats and  marinas will  continue
     to grow in size and complexity if steps are not taken in the immediate
     future to control them.  Sanitation.is  a prime factor in boating en-
     joyment and it is important that the boating  industry and  local,
     States and the Federal Governments  work-cooperatively toward this
     common objective.

     Attainment of this objective would  require measures to  (l) protect
     the water resource by collecting and treating the discharges of
     galley and body wastes from pleasurecraft  and marinas,  (2) conserve
     the water resource for legitimate uses  through pollution abatement
     measures for boats and marinas, and (3) provide technical  leader-
     ship and guidance in the planning and development of programs
     relating to control of boat and marina  pollution, including  the
     collection, evaluation, and dissemination  of  necessary  and. usable
     data to Federal, State, and local agencies, industries, and  other  .
     interested organizations.  To be effective, the measures and regu-
     lations promulgated by Maryland, Virginia  and the District of Columbia
     should be uniform.

13.  Bacterial Pollution and the Problem of  Swimming in the  Upper- Estuary

     The bacterial count in the upper estuary  is at all times above the
     standards for natural swimming waters imposed, by  the State health
     departments.  This bacterial pollution  comes  from a variety  of
     sources.  The elimination from the  estuary of all untreated  and un-
     disinfected waste water discharges, plus treatment and-disinfection
     of discharges from all storm and combined  sewers  and all boats and
     marinas would do much to correct this situation but would  be an
     expensive program involving expenditures which, within  the present
     state of knowledge regarding waste  treatment  methods, might  cost
     well over 2 billion dollars.

     But even^with completion of this expensive program, it  is  highly
     questionable whether the bacterial  count would be reduced  to accept-
     able figures.  In addition to vessels in  transit  which  might on
     occasion also discharge untreated wastes,  considerable  pollution
     would still find its way into the upper-estuary  from every branch,
     ran and creek emptying into it.  Studies  on Rock  Creek  revealed the
     existance of numerous small outlets which  were discharging liquids
     of questionable quality and unknown origin,  and bacterial  counts
     were above acceptable levels, even  in dry  weather.  Studies  by the
     John's Hopkins University on Jones  Falls  and  Herring Run,  in Balti-
     more, Md., show that these urban streams,  flowing through  a  city  which

-------
.has no combined sewers,  nevertheless  contains  a  certain amount of
 untreated, domestic sewage of unknown  origin.   These  discharges are
 probably the result of illegal and surreptitious connections of
 sanitary outlets to storm sewers,  direct discharges  to the  creek
 from old and long forgotten private sewers  and from  small residential
 developments, or leakage frotf interceptor and  trunk  sewers.  Sewers
 can leak outward as well as inward and an early  report by the Public
 Health Service indicates that in years past the  interceptor sewer in
 Rock Creek was leaking wastes to the  stream.

 This general situation is probably characteristic of all urban streams,
 and is-the penalty we must pay for the dense urban occupation of their
 drainage basins. In the Washington Metropolitan  region, it  can be ex-
 pected that every stream in the area, including, for example, Cabin
 John Branch, Four Mile Run, Piraraits Run,Spout  Run, Donaldson Run,
 Northwest Branch and others, would, on careful inspection probably
 show this same polluted condition. A detailed and costly sanitary
 survey, including interior inspection of many  homes, would  be required
 to correct such conditions.  Chlorination of ever;/" stream might also  .
 be required.  Beyond these sources of pollution, however, direct run-  •
 off from the urban land itself, adjacent to all  water courses, would
 also bring with it a certain amount of pollution.

 As long as the conditions described above prevail, health authorities
 would in all likelihood be unwilling to approve  -the  metropolitan reach
 of the Upper Estuary as a suitable place  for swimming,  on the grounds
 that it did not meet requirements  of the Sanitary Survey.   This'con-
 clusion is in line with the water  quality  criteria proposed by the
 Interstate Commission on the Potomac  River  Basin in  1956, which were
 based on the view that attainment  of swimming  water  quality in the
 Metropolitan section of the Upper  Estuary was  questionable.

 The report of the Subcommittee on  Science,  Research  and Development
 of the House Committee on Science  and Astronautics,  89th  Congress,
 on Page 29, summarizes this whole  complex  problem of .swimming water
 quality in urban surface waters as follows:  "Swimming and  water
 contact sports in urban surface waters would  seem to be an  expensive
 and distant possibility."  The Water Quality  Sub-Task Force is  in
 agreement with these conclusions and suggests  that a great  many
 very fine swimming pools, with sand beaches and  other amenities,
 might be built for far less than the cost  of  trying  to reduce bac-
 terial pollution in the upper estuary to  a level which would meet
 any reasonable bacterial standard for natural  swimming waters.

 Use of the Bstuary for Emergency Water Supply.

 Previous discussions indicated that, with the.construction  of the
 recommended treatment facilities,  it should be possible to  use  the
 upper estuary as an auxiliary water supply during emergency conditions.
 Such conditions would prevail during prolonged droughts when river  flow
 was low, and there was little if any surface  runoff.  Under these

-------
                                                                      149

     conditions, the quality of the water at the upper  end of  the  estuary
     would probably be little different from that of the  river above the
     water supply intake9 and should therefore prove suitable  as a raw
     water source for an emergency supply.  Recirculation .in the estuary,
     would quickly destroy this condition, however.  ^

     These acceptable conditions vould not prevail during storms.   The
     estuary would then receive large quantities of  raw sewage discharged
     with the overflow from the combined sewers, as  well  as the highly  '
     polluted storm runoff from the streets and yards of  the area. In
     this respect, the quality of the waters of the  estuary would  differ
     materially from that of the Potomac at the water supply intakes.  In
     the -latter case, the waters, while muddy and sediment laden as result
     of rural land runoff, would not have received the  large quantities of
     raw sewage and street filth discharged to the estuary. Thus, it is
     questionable whether the estuary can be considered as an  acceptable
     source of raw water under storm conditions.  However, it  is also ques-
     tionable whether the estuary would be needed as an auxiliary  source of
     water at such times, since there should be enough  water flowing in the
     upper river to supply all requirements.

     The Sub-Task Force has made no computations regarding the period of
     time over which the estuary might be able to serve as an  emergency
     water supply source, nor with respect to what effect continued
     recirculation would have upon quality.  It has  also  not investigated
     the relationship of the estuary to needed upstream water  supply
     impoundments.  It is not contemplated in the forgoing discussion,
     however, that the estuary could completely take the  place of  upstream
     storage as a means of assuring an adequate supply  of water for the
     metropolitan area.  Furthermore, it is felt that a great  deal more
     detailed study and investigation should be undertaken, before a
     final decision is made regarding the use of the Upper Estuary as even
     an emergency supply.

15.  General Conclusions Regarding the UTrper Estuary.

     The water quality improvement measures discussion  in the  preceeding
     sections have as their objective the use of the estuary for all
     purposes.  A review of these measures indicates that it should be
     possible, at reasonable cost, to bring all waste water treatment
     plants up to acceptable levels of waste treatment, including  pro-
     vision of advanced treatment for the removal of phosphates.   These
     facilities, plus some-small amount of upstream  storage and the diver-
     sion and dispersal of some portion of the treated  wastes  to the lower
     portion of the upper estuary should make it possible to eliminate the'
     algal bloom problem-and make the estuary suitable  for fish support
     and, except during times of storms, esthetically acceptable for en-
     vironmental and general recreational uses.  Under  these conditions,
     the estuary could probably also serve as an emergency source  of
     water supply for the metropolitan area.  Assuming  that the local

-------
                                                                  50

governments will, at their own expense, provide adequate secondary
treatment facilities in any case, the additional costs involved are
relatively modest, involving somewhere around eight to nine (8-9)
cents per thousand gallons of wastes treated.

Depending upon the results of continuing experiments on Rock Creek,
it is also believed that, at not too great an additional cost, it
might be possible to apply chemicals to quickly reduce the turbidity
of the estuary following storms.  Additional costs might be incurred,
however, for periodic local dredging.

Beyond the measures just described, the measures.required to make
the estuary suitable for swimming and esthetically acceptable under
all conditions, as well as to preserve and enhance its physical charac-
teristics with respect to depth and surface water area, calls for
additional expenditures which might amount to several billions of
dollars..  Spread over 50 years, these additional capital costs would
amount to somewhere around seven cents per capita per day for the
residents of the entire Metropolitan area.  Operating costs would
add several cents more.
At this point in time, it is impossible to state with any definiteness,
whether at some given date in the future, or ever, it will be possible
to have swimming in the Upper Estuary.  Much additional investigation
and research, and the construction of various demonstration and pilot
facilities will be required before this question can be resolved.  In
any case, it will require a considerable number of years to construct
facilities indicated to be needed.

-------
                                                                  51
                  SECTION V - IMPLEMENTATION
The program outlined, in the previous sections of this report calls
for the contraction of numerous waste water treatment facilities
as well as the undertaking of various other measures.  Most of these
facilities must be constructed, by the local governments and. industries
involved, as part of their responsibility for eliminating water
pollution.

A second problem regarding maintenance of acceptable quality condi-
tions in the river is concerned with the management and operation
of the waste treatment facilities.  The finest facilities possible
are of no use if not properly operated.  This suggests the need for
some means of training, licensing and supervising the plant operators.
It also indicates the need for continuous monitoring and surveillance
of the river and of the discharges from'all outlets to the river, in-
cluding a central clearing house for the reporting of spills which
could be detrimental to downstream water uses and users.

The objectives to be attained involve or are the concern of a number
of governmental agencies, Federal, State, local and regional.  No
one agency is presently responsible for coordinating, supervising,
managing or operating the river as a unit.  Yet the river must be
viewed and treated as a single: entity if these goals are to be
achieved.  Some form or organization is therefore required which
would have_ the authority and power to undertake the various tasks
required, to coordinate, supervise and assist the local governments
and otherwise have general jurisdiction over the whole river.  With-
out such an organization, it is questionable whether-'the goals held
desirable can be reached.  Yet implementation is inherent in any
program, if it is to have any meaning.  -The Sub-Task Force accordingly
recommends that every effort be made by all agencies and interests
concerned to promote the establishment of an organization along the
lines of that described above.

-------
                                                                      52

     SECTION VI - RECOMMENDATIONS REGARDING NEEDED*ADDITIONAL STUDIES

1.  Need for a  Reexamination of Bacterial Standards for Natural Swimming
    Waters.

    The bacterial standards' for natural swimming vaters set forth in
    Section II of this Report are expressed in terras of so-called
    "standard" coliform bacteria.  These bacteria are easily identified  '
    organisms which are found in the bodies of all warm, blooded animals.
    Pathogenic organisms of human or animal origin are, on.the other
    hand, much harder to culture, isolate and identify.  Because of this
    difficulty, the presence of coliform'bacteria in large numbers in
    water is used as an indicator of the probability that pathogenic
    organisms might also be present as a potential hazard to persons
    using the water.  The standards adopted suggest, in effect,'that
    if the total numbers of coliforms found per 100 mililiters of the
    water being tested do not exceed the numbers set forth in the
    standard, then the hazard of contracting disease from swimming in
    the water is relatively, low.

    Unfortunately9 certain types of coliform organisms, unassociated
    with pathogenic types, but included in the standard definition of
    coliform organisms, also exist in the soil and are carried into
    streams with surface runoff.  Also, coliforra organisms appear to
    have an ability to re-grow in numbers; under certain conditions,
    after disinfection of treated waste discharges in which they are .
    carried, whereas pathogenic bacteria may not.  In these circum-
    stances 9 there might be no pathogenic organisms present, even though
    the colifoma count is high.  To complicate this situation still
    further, little is known about the transmission by water of diseases
    common to man and beast, in situations where the disease originates
    in animals.  Yet, as disclosed below, runoff from farms contains •
    large numbers of bacteria of animal and land origins.  Still another
    complicating factor is the fact that the fate of pathogenic viruses
    in waste waters, whether treated or not before discharge to the
    stream, is not fully understood, although there is proof that the
    virus of infectious hepatitis survives secondary treatment and can
    cause epidemics.

    Recent limited bacterial samplings made by staff of the Interstate
    Commission on the Potomac River Basin at several points along the
    mainstem of the Potomac above Washington, and on several of its.
    tributaries, strongly suggest, although they do not conclusively
    prove, that the bacterial pollution found at most of the sampling
    points was largely of animal, rather than human origin.  The infer-
    ence was based on the finding of relatively greater numbers of fecal
    coliforms than of fecal streptococci.  These two types of bacteria,
    which are believed by some investigators to be better indicators of
    the possible presence of din ;ase organisms than are standard coli-
    forms, have been found in company with the standard coliforms.  The
    significance of this finding is 'in the fact that the nearest location

-------
                                                                  53

to the sampling-points of discharges of .human wastes were, in most
cases, remote, and. the wastes in question in most cases received.
adequate treatment and chlorination.  Other samplings' on the Potomac,
taken at other tines, indicate that there is a rapid and large in-
crease in the number of coliforms present in the river following
rain, again suggesting that these organisms are brought to the river
by surface runoff and have their origin in the soil or in animals,
rather than in sanitary waste discharges.

From the forgoing discussion, it is apparent that the presence of
•standard coliform bacteria in significant numbers in a water body
is not always a reliable indicator of the probable presence of
pathogenic organisms which might be dangerous to human beings,
although their presence in significant numbers indicates that such
a possibility exists.  The question is thus raised as to the rnean-
ingfullness and reliability of tests based on standard coliforms as
an indicator of the probable risk involved in using the waters of
the Potomac for swimming.

Because of difficulties such as those just cited on the Potomac,
there is widespread divergence of opinion and considerable dissatis-
faction among sanitary engineers and public health officials across
the Country regarding the value of the historically established bac-
terial standards for swimming in free flowing streams, lakes, and
tidal waters.  This dissatisfaction is aggravated by the knowledge
that the existing standards are not, so far as can be determined,
supported by documented epiderniological studies.  There is, conse-
quently , a growing tendency to try to move to other standards, or
other methods of control.

The Public Health Activities Committee of the Sanitary Engineering
Division, American Society of Civil Engineers, has devoted consider-
able attention to this problem.  In an extensive Progress Report
published in August 19^5S the Committee stated that "health officials
cannot or are unwilling to chance major relaxation of MPN standards
until group judgment is squarely applied to the problem as was done
by the British or until research more conclusively evaluates the
question.  The amount being spent to build, operate, maintain and
test treatment processes intended solely for meeting MPN criteria
would justify extensive research to provide a scientific and factual .
basis for a national or international standard.  The Committee recom-
mends that ASCE point out the strong economic justification for
specific controlled epidemiological research designed and executed
to assess fully the health- implications of microbiological contamin-
ation of recreational waters."

Until more definitive standards are devised, the evaluation of the
waters of the Potomac Basin for swimming and body contact sports
musts of course, be based on the historical standards now in force
in each of the particular States involved.  This the Sub-Task Force
has done.  The results, as disclosed in the preceeaing sections,
are generally unfavorable.  Whether they would be more favorable
with other standards, based on more thorough investigation, is

-------
    presently indeterminable.  But the Sub-Task Force believes that  such
    an investigation should be undertaken.   It accordingly recommends
    that, in accordance with the terms of the recent memorandum of agree-
    ment between the Interior Department and the Department of Health,
    Education and Welfare regarding the availability of assistance from
    the Public Health Service on matters of health relating to water
    pollution control^ the Secretary of the Interior press for the
    establishment, cooperatively with the Public Health Service end  other
    Public Health agencies and organizations 5 of a definitive investiga-
    tion in depth of the bacterial water pollution problem in relation  to
    swimming, in order to establish a sound basis for meaningful bacterial
    and/or other standards for natural swimming waters.  Because diseases
    of animal origin may also be involved,  it is also urged that the
    Department of Agriculture be as.ked to participate fully in this  study.

    The results of such an investigation would be of great value not only
    in planning for the use of the waters of the Potomac River, but  for
    all of the natural waters of the Country.

2 .   Need for Broadening: the Flow Regulation Provisions of the Federal
    Water Pollution Control Act.
    Section 3 (b)' of the Federal Water Pollution Control Act permits the
    inclusion in Federal reservoirs of storage for the regulation of flow
    in rivers for the purpose of water pollution control and abatement,
    provided that the need for such storage is demonstrated and provided
    that the storage is not used as a substitute for adequate treatment
    of the wastes at the source of the pollution.  If, after the provision
    of such treatments there would still exist an undesirable pollution
    condition in the stream receiving the treated wastes, then flow regu-
    lation by means of releases from storage to dilute the wastes may be
    provided.

    Based on existing knowledge and general practice, "adequate treatment"
    has, up to the present time, been interpreted to mean secondary, or
    biological treatment to the degree necessary to remove at least 85
    percent of.the oxygen demanding organic wastes, or equivalent treat-
    ment in those situations where the wastes are of a different nature.
    This interpretation has been applied on a uniform basis nationally.
    As the technology of waste treatment advances, the requirements for
    "adequate" treatment will no doubt be raised, with corresponding effect
    upon the degree of flow regulation storage required.  Within any
    given river basin, region or hydrologic system, however, it appears
    only reasonable, on grounds of equity, to require that a uniform
    definition of "adequate" be applied.

    The Act also requires that the benefits resulting from the provision
    of flow regulation storage shall be evaluated., and provides that
    where the benefits are widespread, the costs of providing the storage
    shall be non-reimbursable; that is, shall be provided at Federal
    expense.

-------
                                                                  55
The evaluation of benefits from flow regulation storage is not easy. •
Most of the benefits are of such a nature that, while very real and'
desirable, they are difficult, if not impossible to express in terms
of dollars.  Consequently, it has become the practice to describe the
benefits in such a way as to provide a judgemental basis for determin-  .
ing whether or not provision of the storage appears warranted.  If,
on this basis, provision of the storage is deemed to be justified, then
the dollar value of the benefits is, under provision of Senate Document
No. 97, considered to be at least equal to the cost of providing the
same benefits by the next most feasible alternative method available
in the absence of the project.

In most instances, this alternative has been found to be a single pur-
pose dam and reservoir, usually located at the site of the proposed
Federal reservoir.  This is not always the case, however.  In some
instances, diversion of the treated wastes to the ocean or some other
larger stream, may be a preferable alternative.  Or advanced waste
treatment may be a possible alternative.  Which ever of the possible
alternatives is the least costly is used as the basis for evaluating
the flow regulation benefits.

In some instances, the alternative used to evaluate the flow regula-
tion benefits may actually be cheaper than provision of storage, even
when the multiple purpose advantages of the Federal Reservoir are
taken into account.  Or the alternative may, for social, institutional
or other reasons, be considered preferable.  In such situations, the
alternative itself obviously is the facility which should actually be
constructed.

Yet the provisions of the law as now written do not permit this because
it limits direct Federal participation in the abatement of stream pollu-:
tion to the provision of flow regulation storage only.  No Federal
agency is empowered to construct at Federal expense, or to pay for
the construction of, any other alternative, even though it is more
economical or is deemed to be a better solution.  It would seein obvious,
.however, that in the examination of the problem, all alternatives for
solving it should be considered and evaluated.

The Federal Water Pollution Control Administration is, of course,
authorized to make grants to non-Federal governmental agencies to aid
in constructing waste treatment facilities, but the grantee in such cases
must also put up matching funds.;  It must be recognized, however, that
after financing the costs of secondary treatment, most such non-Federal
agencies would obviously be unwilling to finance even a part of the
cost of an advanced waste treatment or other facility as an alternative
to flow regulation storage, no matter how desirable, when the Federal
government will pay the whole cost of the storage.
                                       *
In the case of the Potomac River, consideration of advanced treatment
as a possible alternative to flow regulation storage is of much
greater significance in the Upper 'Estuary than in the Flowing River
portion-of the Basin.  In the fluvial portion of the Basin use of
advanced treatment for the removal of nutrients would as reported

-------
                                                                "  56

 earlier herein,  apparently do little to improve the nutrient situa-
 tion  in the  Estuary  and probably would do little to reduce the
 nutrients  in the flowing river.  This same type of treatment, as
 well  as others' now under study might, however, also further reduce
 the residual BOD in  the secondary treatment plant effluents of the
 Upper Basin  to the point where flow regulation storage could be
 reduced or might even  not be needed.  Determination of whether
 such  advanced treatment for removal of BOD would be more economical
 than  flow  regulation storage is, however, by no means as easy ques-
 tion  to resolve.  Water stored for control of quality in the upper
 reaches of the river becomes water supply for both in-stream and
 withdrawal uses  further downstream.  Storage of water for quality
 control is therefore inseparable from storage for water supply, as
 well  as for  flow regulation in conjunction with third stage waste
 treatment  in the Washington area to control water quality in the
 estuary.

 To analyze these problems, a study in greater depth than was possible
 as part of" the Sub-Task Force assignment will.be necessary, and would
 probably require from  six months to a year to complete.  At the
 present state of knowledge regarding advanced treatment, however,".: it
 is quite probable that, because of the multiple purpose benefits
 derived from the stored water, flow regulation storage would prove
 to be the  cheapest alternative for additional pollution control ".
 following  secondary  treatment for the upper Potomac Basin.

 In the Upper Estuary,  the  situation is just the reverse.  Flow regu-
 lation without advanced treatment and.other measures would do little
 to correct the algal bloom problem, which is the most serious pollu-
 tion  condition in the  Estuary.'  The question of who should pay for
 the advanced treatment therefore poses a question of equity.  If flow
 regulation should prove to be the answer to the residual pollution
 load  in the  upper, fluvial-portion of the Basin, it can now be
 provided,  under  the  laws  at full Federal expense.  But -the law does
 not permit provision at full Federal expense of the advanced waste
 treatment  required in  the  estuarine portion of the Basin.  Principles
 of equity  suggest that either the Federal Government should also pay
 for the-advanced treatment facilities in the Washington area or that
.the polluters in the Upper Basin be required to share in the costs
 of flow regulation storage.

 The forgoing discussion clearly indicates that a modification of the
 law is required, on both  equitable and .economic grounds, in order  to
 permit consideration on an implementing basis of all alternatives  for
 stream quality improvement following "adequate" treatment of wastes,
 including  advanced treatment.  The Sub-Task Force accordingly recommends
 that  studies looking toward possible modification of Section 3  (b) of
 the Act to provide for situations such as those in the Potomac River
 Basin described  above  be  initiated.  These modifications should be
 applicable on a  National  basis.   In the latter context, consideration
 might well be given also  to the inequities of those  situations where

-------
                                                                   57
flow regulation storage is indicated to be needed,  but  where no
Federal reservoirs are planned or axe likely to be  built.   Steps
toward reexardnation of this whole problem are being taken by the
Department of the Interior, the Water Resources Council and the
Bureau of the Budget.

-------