FWQA REPORT
NO. 14-12-910/10
NATIONAL PLAN
AND STRATEGY
FOR
WATER QUALITY
PROGRAM SUMMARY
tLEAl
FEDERAL WATER QUALlW ADMINISTRATION
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PROGRAM SUMMARY
NATIONAL PLAN AND STRATEGY
FOR WATER QUALITY
NOVEMBER 1970
FEDERAL WATER QUALITY ADMINISTRATION
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TABLE OF CONTENTS
Section 1.0 OVERVIEW I
2.0 WATER QUALITY STANDARDS 31
3.0 BASIN PLANNING ASK SYSTEMS ANALYSIS 4?
4.0 NATIONAL PROBLEM ABBAS 59
4.1 MUNICIPAL WASTES 60
4.2 INDUSTRIAL AND POWER PLANT WASTES 71
4.3 AGRICULTURAL WASTES 81
4.4 OTHER URBAN WASTES 95
4.5 OIL AND HAZARDOUS MATERIALS SPILLS 101
4,5 WASTES FROM MINING AND WELLS 117
4.7 OTHER WASTES 127
5.0 PROGRAM MANAGEMENT 139
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PREFACE
This Program Summary presents the Federal
Water Quality Administration's National
Plan and Strategy for achieving defined
water quality objectives during the decade
of the 1970's. This summary revises and
updates the preliminary draft Program
Memorandum of 12 August 1970
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SECTION 1
OVERVIEW
1.1 INTRODUCTION
1.2 THE MAGNITUDE OF THK PROBLEM
1.3 MISSION, OBJECTIVES, AND GOALS
1.4 PROGRAM STRATEGY
1.5 MAJOR POLICY ISSUES
1.6 LEGAL CONSTRAINTS AND LIMITATIONS
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SECTION I
OVERVIEW
1.1 INTRODUCTION
The Nation's water resources are fundamental to the well-being of
present and future generations. They represent a priceless, renew-
able, but fragile national asset which can and must be managed to
meet all needs—domestic, agricultural, industrial, fish and wild-
life, recreational, natural beauty. Adequate quality standards can
be achieved, but as the President stated in his Environmental Mes-
sage, "The tasks that need doing require money, resolve and
ingenuity—and they are too big to be done by government alone.
They call for fundamentally new philosophies of land, air, and
water use, for stricter regulation, for expanded government action,
for greater citizen involvement, and for new programs to ensure that
government, industry and individuals all are called on to do their
share of the job and to pay their share of the cost."
This document outlines the broad national strategy which, if fol-
lowed, will achieve adequate water quality throughout the Nation
during the decade of the 70's. This strategy defines the broad
management and planning techniques necessary to direct effectively
the programs of the Federal Water Quality Administration, and within
the broader framework of a State/Municipal/Federal partnership, to
assure timely solution of specific water quality problems on a
oriority basis. This plan sets forth a comprehensive set of objec-
tives and goals and presents two alternative levels of effort, opti-
mum and proposed, with appropriate recognition of their relative
accomplished impacts and effectiveness toward achieving national
and regional water quality objectives.
The optimum program describes the steps and resources required for
the most effective accomplishment of water quality objectives in the
shortest possible time frame. In view of the existing fiscal situa-
tion, however, a proposed program is described that provides a lover
level of effort which will achieve water quality objectives, but
over an increased time period.
The proposed program reflects projected commitments that would result
from the 1972 decisions as identified in this program. Sub-
sequent year program planning will be updated to recognize accom-
plishments, changed physical factors, improved technology, etc., but
will remain consistent with the objective of achieving water quality
goals.
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The national strategy for water quality is necessarily dynamic. The
present document provides the base for this strategy and plan and
will be periodically updated as further information is obtained and
planning activities mature. The Water Quality Standards and River
Basin Planning Programs cut across all aspects of pollution control
and prevention. These two programs, combined with the President's
$10 billion municipal waste construction grant program and an effec-
tive management program, provide the main thrust to achieve water
quality. In addition, they provide the mechanism for focusing the
resources of research, development and demonstration (RD&D) , con-
struction, enforcement, technical assistance, and manpower and
training on seven major pollution problem areas. These national
problems areas are:
Municipal-Sewered Wastes
Industrial and Power Plant Wastes
Agricultural Wastes
Other Urban Wastes
Oil and Hazardous Materials Spills
Mining and Wells
Other Wastes
The resources required for each of these problem areas are broken
out as specific program elements to describe how each of these
elements (RD&D, enforcement, etc.) are structured as a result of
addressing these problems.
1.2 THE MAGNITUDE OF THE PROBLEM
Best estimates of the present level of water quality indicate that
64 percent of the stream miles within the United States, including
lake shores and estuaries, are in substantial compliance with exist-
ing water quality criteria for the specified levels of water use.
It is estimated that only 55 percent of the urban population is
served by adequate waste treatment facilities. Some 36 percent, or
44 of the 123 million pounds per day, of biological oxygen demanding
wastes discharged by municipalities and industries is not removed
by existing treatment.
The population waste load is increasing at a rate of about 1 1/2
percent per year and industrial activities are increasing at about
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4 1/2 percent per year. Storm drains in many cities are connected
to sanitary sewers resulting in flooding of treatment plants or by-
passing of treatment during peak flow periods. Many industrial
effluents, some highly toxic, are discharged directly or with inade-
quate treatment into streams. Agricultural runoff of nutrients and
pesticides, and drainage from animal feedlots generally are uncon-
trolled. Acids and other wastes drain from mines and mining activi-
ties without treatment. Preventable serious spills of oil and
hazardous materials often occur.
Estimates of the construction costs of facilities to treat all
sources of waste (not including R&D, planning, management, manpower,
maintenance, and operating costs) total between $33 billion and
$100 billion. Table 1 gives a breakdown of these estimates, for
the years FY 1971-1976 and for the total target program, in the
problem area categories of wastes as follows: Municipal-sewered,
other urban, industrial, power, mining, spills, agriculture, and
other (including urban sediment runoff and vessel sanitary wastes) .
Over the next six years municipal-sewered wastes and other urban
wastes, such as storm and combined sewers, are the two problems
requiring the highest construction costs, followed by mining wastes,
industrial wastes, and prevention of spills from oil and hazardous
materials.
Not every problem area can be attacked with equal vigor on a popula-
tion-benefit basis. It is necessary, therefore, to rank problems in
order of priority as to relative degree of impact on people. Such
an index is presented in Table 1 to reflect the combination of the
total waste discharged from the problem sources and the population
adversely affected by such discharges. This ranking indicates that
the highest cost problem with the greatest impact on the most
people is municipal-sewered wastes, followed closely by agricultural
and industrial wastes.
Nor can every problem be attacked with equal effectiveness, given
the current technology, legal basis for action, and the willingness
and financial capability of the responsible persons or agencies to
proceed with abatement. Table 1 includes an effectiveness index and
a rank ordering of "action effectiveness." Municipal-sewered wastes
rank first by a large margin followed by industrial wastes. Agri-
cultural wastes, other urban wastes, other wastes (general), power
plant wastes (thermal), mining, and spill prevention follow in that
order, primarily due to the technical difficulties involved in their
effective treatment. These indices were generated on a river basin
by river basin basis and summary regional breakdowns are shown in
Table 2.
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NEEDS ESTIMATES
Problem Area
Municipal — Sewered
Other Urban
Industrial
Power
Mining
Spills
Agriculture
Other
Total
Estimated
Potential
Low
8.7
6.7
2.4
0.8
0.1
1.0
0.1
0.7
20.5
Construction Needs
FY
Middle
10
16.
3.
1.
2.
3.
1.
0.
39.
8
3
7
4
0
0
0
9
1
71-76
High
13.0
25.9
5.2
2.1
5.0
5.0
1.7
1.1
59.0
(in Billions of
Dollars)
Total
Water
Low
8.7
13.4
2.4
0.8
5.0
1.0
0.6
0.8
32.7
to Achieve
Quality
Uij
Jh
13.0
51
5.
2.
15.
5.
6.
2.
101.
8
2
1
0
0
8
2
1
Indices
Impact
Index
52,000
19,000
38,000
3,400
7,000
2,100
47,000
34,000
-
a/
Rank
1
5
3
7
6
8
2
4
-
Action
Effectiveness b/
Index
44,000
910
6,000
460
260
180
1,300
760
-
Rank
1
4
2
6
7
8
3
5
-
a./ Impact Ind_ex relates the proportion of waste discharged by the problem sector to total wastes discharged in
the basin and most importantly, to the population adversely affected by that discharge. A large relative
discharge affecting a large proportion of the basin population results in a high index.
b/ Action Effectiveness Index combines the relative costs of control, effectiveness toward meeting standards
availability of technology to meet the need and willingness and ability to proceed. This factor modifies
the impact index to show the most effective area in which to move first.
TABLE
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PAGE NOT
AVAILABLE
DIGITALLY
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When the municipal and industrial waste problems are considered in
terms of pollution, as opposed to cost magnitude, the impact of the
industrial vraste problem is more apparent. Table 3 summarizes the
amount of BOD (Biochemical Oxygen Demand) per day from different
types of municipal and industrial sources together with the treatment
capacity for each type. Industries generate 80.7 percent of the ROD
load and account for 84.7 percent of BOD reaching streams. On a
pollution source basis, using only BOD as the measure, industrial
wastes contribute far more pollution than municipal wastes. This
does not consider other types of industrial pollution which may be
even more serious.
The most effective means to achieve progress in reaching water
quality goals and to benefit the greatest number of people, is
through programs to attack municipal-sewered and industrial wastes.
1.3 MISSION, OBJECTIVES, AND GOALS
1.3.1 Mission
The Federal Water Quality Administration derives its basic public
mandate from policies contained in the Federal Water Pollution
Control Act, as amended, and the National Environmental Policy Act
of 1969. Consistent with these policies the Federal Water Quality
Administration's mission is:
(1) To prevent further pollution of the Nation's water
resources by preserving existing high quality waters
for future generations and maintaining achieved levels
of water quality for presently defined uses.
(2) To reverse the present degradation of the Nation's
waters and to enhance the value of water and related
resources by abating pollution and by managing waste-
bearing waters for beneficial reuse.
(3) To contribute to a coordinated and long-range national
program for the preservation of a balanced environment.
The present and future utility or value of bur water resources must
be systematically identified. The properties that define the utility
and value of a water resource are its quantity, quality, and acces-
sibility. The maximum utility and value of our water resources are
achieved through the control of these properties. Pollution is any
impairment of the quality of water resources which interferes with
maximum utility or value.
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COMPONENTS OF NATIONAL
WASTE DISCHARGE, 1968
WASTE SOURCE
I. DISCHARGE POINT
METROPOLITAN POPULATION
NON-METROPOLITAN POPULATION
SEPARATELY DISCHARGING INDUSTRIES*
INDUSTRIES DISCHARGING THROUGH
METROPOLITAN PLANTS
INDUSTRIES DISCHARGING THROUGH
NON-METROPOLITAN PLANTS
TOTAL
II. POINT OF ORIGIN
INDUSTRIAL TOTAL
POPULATION TOTAL
TOTAL
MILLION POUNDS BOD5/DAY
TOTAL
18.3
5.4
80.0
18.2
0.7
122.6
98.9
23.7
122.6
%
14.9
4.4
65.3
14.8
0.6
100.0
80.7
19.3
100.0
DISCHARGED
5.2
1.5
30.7
5.9
0.4
43.7
37.0
6.7
43.7
%
11.9
3.4
70.3
13.5
0.9
100.0
84.7
15.3
100.0
PRESENT
PERCENT REDUCED
BY TREATMENT
71.6
72.2
61.6
67.6
42.9
64.4
62.6
71.7
64.4
*Assumes 300 day average operating year,
Ncvte: Industrial wastes enter our streams through municipal as well as industrial discharges as shown in I. More
importantly, by point of origin, shown in II, industrial BOD contributions account totally for 80.7% of BOD generated
and 84.7% of BOD discharged. Overall effectiveness of industrial waste treatment is well below that of municipal,
and because of the greater relative volume of industrial wastes, total national waste treatment effectiveness falls
well below the municipal average.
TABLE 3
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1.3.2 Objectives
The objectives of a National Clean Water Program for the decade of
the seventies is to restore the Nation's water environment to a
healthy and stable state and to provide adequate and protected water
resources for the needs and the future well-being of the "ation's
population.
The objectives of the proposed five-year program ending in 1976 are
to establish water quality standards, including effluent require-
ments to be met in accordance with individual time schedules, for
the waters of the Nation, including navigable, coastal and ground
water; to achieve compliance with the specified effluent require-
ments for all industrial and municipal discharges.
The long-range 1980 objective of the proposed program is to manage
and control all other sources of pollution. The optimum program
will achieve most water goals by the end of 1976. In addition, the
optimum program will provide by 1980 the technology and institutions
for the complete recycle of waste and the reuse of renovated waste
waters.
1.3.3 Achievable Goals
The following milestones are listed to meet overall program
objectives in a cost-effective manner at an optimum and realistic
level of effort. Dates shown here are calendar dates.
In 1970, to implement tight regulations to identify and
prevent contamination of water resources by those hazardous
materials which endanger human health and the environment.
In 1970, to achieve total participation with the Council on
Environmental Quality in pursuing the many and varied inter-
agency facets of a concerted Federal effort to protect and
enhance the quality of the Nation's environment, to sustain
and enrich human life.
In 1970, to initiate a program to prevent the pollution of
the ocean environment in consonance with policies developed
by the Council on Environmental Quality and international
agreements.
In 1971, to have operational information systems and a program
management capability to assess continually the status of pro-
gram accomplishments and to direct resources effectively
toward goals.
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In 1971, to have a fully operational capability to respond to
and clean up oil and hazardous material spills and, by mid-
1973, to have a fully operational preventive program for oil
and hazardous materials.
In 1972, to establish water quality standards for all coastal,
navigable and ground waters adequate to meet the projected
public demands for the year 2000.
In 1972, to establish effluent requirements as an element of
water quality standards for all point waste sources to facili-
tate compliance with water quality criteria and basin plans.
In 1972, to abate pollution caused by all Federal installations
and to continue to provide ongoing assistance to other Federal
agencies in protecting and enhancing the quality of the envi-
ronment pursuant to Executive Orders 11507 and 11514.
In 1972, to complete a program to control heat and radiation
discharges from power production plants in conjunction with
other Federal agencies and programs and policies.
In 1972, in conjunction with completed basin plans, to devise
programs to control storm water and other urban runoff.
In 1972, to begin the development, through assistance to the
States, of implementable estuarine and coastal zone management
plans.
In 1973, to complete required impleraentable water basin plans
to be certified by the States and water basin commissions and
to be accepted by FWQA.
In 1973, to complete the control of pesticide pollution of the
water environment.
In 1973, to initiate a program to control salinity pollution
problems.
In 1973, to have initiated programs to control the sediment
runoff from agricultural, urban, and public lands.
In 1973, to initiate programs to control nutrients from
agricultural drainage.
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In 1974, to have a fully operational program in conjunction
with basin plans to control subsurface waste disposal practices
and to preserve the quality of the Nation's ground water
resources.
In 1974, to complete development of an effective onsite
disposal system for use in individual homes and small
communities.
In 1974, to complete a detailed system analysis of plumbing-
sewer systems with the objective of obtaining a 90 percent
flow reduction.
In 1974, to have developed the control technology and initiated
the regulatory and construction programs to control water
pollution from active mines, and by 1990 to have achieved full
control of these activities in abandoned mines.
In 1976, to achieve full compliance with effluent requirements
for industrial wastes, and to maintain this level of compliance
on an ongoing basis through surveillance, enforcement, or
alternative methods to be determined.
In 1976, to achieve compliance with effluent requirements for
municipal wastes and to maintain this level of compliance on
an ongoing basis through surveillance, enforcement, and public
utility long-term financing arrangements.
In 1976, to achieve a 90 percent reduction in the shellfish
areas closed to harvesting because of pollution.
In 1976, to achieve full compliance with effluent requirements
for animal feedlot and agri-business operations.
In 1976, in conjunction with completed basin plans, to control
50 percent of combined sewer discharges.
In 1976, to achieve through joint effort with the States and
Coast Guard full control of the sanitary wastes and refuse
from water craft on navigable waters.
1.3.4 Federal Water Quality Administration Priorities
The previously stated goals have been structured in the following
order of priorities to meet the ten-year objectives of the National
Clean Water Program. These priorities reflect the necessity for
adequate management, planning and standard setting activities as an
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essential prerequisite to achieving long-range objectives within
budgetary constraints. Priorities are listed within four general
categories in descending value:
Essential
High Impact
Med ium Impac t
Deferred Impact
The priorities assigned to the goals by these categories are shown
in Table 4.
1.4 PROGRAM STRATEGY
Dual paths are proposed in the strategy for the attainment of water
quality goals (Figure 1). The first of the paths deals with inter-
state and coastal waters, presently covered by existing water
quality standards, and the second deals with all other national
waters.
Existing Federal legislation provides an imperfect mechanism for
attaining water quality goals in interstate and certain coastal
areas. Additional legislation is needed to facilitate enforcement
activities in these waters. In addition, legislative authority
should be extended to all other national waters, including ground
waters, in order to attain a truly national goal. Alternative path-
ways based on voluntary compliance exist, but would be unlikely to
attain goals within the prescribed time period. In each case, the
overall strategy reflects fully the concepts of State/Federal
coordination prescribed by the Federal Water Pollution Control Act,
as amended.
The water quality standards are the first key to progress. Properly
used, they identify uses and criteria, render a timetable for
corrective measures,and provide a mechanism for implementation and
enforcement. The development of effective, reliable river basin
pollution abatement and prevention plans is the second essential
step in the attainment of goals. These plans relate the sources of
pollution and the hydrographic characteristics of the basin to the
applicable water quality standards and provide a visible community
framework for control.
These plans recognize the varying hydrographic conditions and
inherent differences in pollution types and provide the cost-effec-
tive, timely, corrective, and preventive action requirements for
each of the 1,300 river basins and 700 estuarine systems comprising
the water resources of the United States.
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PRIORITIES OF GOALS
I ESSENTIAL
II HIGH IMPACT
• TOTAL PARTICIPATION IN FEDERAL
ENVIRONMENTAL EFFORTS (1970)
0 INITIATION OF OCEAN POLLUTION
PREVENTION PROGRAM 11970)
• OPERATIVE INFORMATION SYSTEMS
AND PROGRAM MANAGEMENT CAPABILITY
(1971)
• WATER QUALITY STANDARDS BASED
ON YEAR 2000 (1972)
• EFFLUENT REQUIREMENTS FOR POINT
WASTE SOURCES (1972)
• BEGINNING ESTUARINE AND COASTAL
ZONE MANAGEMENT PLANS (1972)
• CERTIFIED BASIN PLANS FOR ALL
WATER BASINS REQUIRING DETAILED,
IMPLEMENTABLE PLANS (1973)
• FULL COMPLIANCE WITH MUNICIPAL
WASTE EFFLUENT REQUIREMENTS 11976)
• IMPLEMENTATION OF STRICT HAZARDOUS
MATERIALS REGULATIONS (1970)
• RESPONSE CAP ABILITY FOR OIL AND
HAZARDOUS MATERIAL SPILLS (1971);
PREVENTIVE PROGRAM (MID-1973)
• ABATEMENT OF FEDERAL INSTALLATIONS-
POLLUTION (19721
• CONTROLS FOR POWER PRODUCTION
PLANTS HEAT AND RADIATION
DISCHARGES (1972)
• CONTROL OF PESTICIDES POLLUTION
IN WATER (19721
• DEVELOPMENT OF SMALL SCALE,
ON-SITE DISPOSAL SYSTEMS (1974)
• FULL COMPLIANCE WITH INDUSTRIAL
WASTE EFFLUENT REQUIREMENTS (1976)
• 90% REDUCTION IN CLOSED SHELL
FISHING AREAS (1976)
III MEDIUM IMPACT
IV DEFERRED IMPACT
I CONTROL OF SUBSURFACE WASTE
DISPOSAL (1974)
I DETAILED SYSTEM ANALYSIS OF
PLUMBING-SEWER SYSTEMS, TOWARD
90% FLOW REDUCTION (1974)
I FULL COMPLIANCE WITH AGRI-BUSINESS
EFFLUENT REQUIREMENTS (1976)
> CONTROL OF SANITARY WASTES AND
REFUSE FROMWATERCRAFT (1976)
CONTROL OF 50% OF COMBINED
SEWER DISCHARGES (1976)
• PLAN TO CONTROL STORM WATER AND
OTHER URBAN RUNOFF (19721
• INITIATION OF SALINITY POLLUTION
CONTROL PROGRAM (1973)
• INITIATION OF SEDIMENT RUNOFF
CONTROL PROGRAMS (1973)
• INITIATION OF PROGRAM FOR CONTROL
OF NUTRIENTS FROM AGRICULTURAL
RUNOFF (1973)
• TECHNOLOGY FOR CONTROL AND INITIATION
OF MINING POLLUTION CONTROL PROGRAMS (1974);
FULL POLLUTION CONTROL AT OPERATING MINES
(1990)
TABLE k
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CURRENT
STATUS
WQS FOR 23
STATES AND
JURISDICTIONS
ADOPTED FOR
INTERSTATE
WATERS
ALL OTHER WATERS - EXTEND AND UPGRADE
INTERSTATE AND COASTAL WATERS - UPGRADE
COST/EFFECTIVE
AND TIMELY
CONTROL OF
SEVEN BASIC
TYPES OF
POLLUTION
TOTAL
CONTROL
COST/EFFECTIVE
AND TIMELY
CONTROL OF
SEVEN BASIC
TYPES OF
POLLUTION
CONTROL OF
INTERSTATE
WATERS
FIGURE I
STRATEGIC PATHS TO NATIONAL WATER QUALITY GOALS
FRAMEWORK FOR STATE/FEDERAL COOPERATION
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In summary, water quality standards form the basis for the control
and abatement actions to he implemented in each water basin.
Resulting basin plans provide the means of focusing the proper mix
of new technology, facility construction, enforcement and manage-
ment of resources in the most cost-effective manner.
1.4.1 Strategic Actions
The overall strategy encompasses six major strategic action concepts,
These concepts include:
(1) Timephasing of three major construction programs (Munici-
pal, Other Urban, and Mining Wastes) to avoid cumulative
economic impact at Federal, State, and community levels
as shown in Figure 2.
(2) The establishment of priorities to direct resources
initially into those geographic areas with maximum
population impact and into pollution source areas in
which corrective technology is available.
(3) Critical timephasing for acquisition of scientific
information in advance of major corrective and construc-
tion programs and the deferral of low priority needs.
(4) The application of cost-effective concepts to all program
elements to assure maximum utilization of new technologies
and institutional opportunities.
(5) The development and recommendation of supportive
legislation in such areas as water resources development,
agricultural assistance programs, and abandoned mine
restoration.
(6) The involvement of the citizen, old and young, to the
maximum extent possible in programs to reclaim, preserve
and protect the environment.
1.4.2 Strategic Elements
The proposed programs provide an articulated approach to the
management of the seven principal waste types, i.e. municipal,
industrial, agricultural, other urban, oil and hazardous material
spills, mining and other. FWQA is developing technologies and
institutional procedures for abating and preventing pollution in
each of these national problem areas. These programs are tailored
to identify technical, administrative, legislative, and financial
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4000
3000
$ MILLIONS
2000
1000
MUNICIPAL
FEDERAL TOTAL
COMBINED SEWERS
TOTAL FEDERAL SHARE
1970
1971
1972
1973
1974
1975
1976
1978
1979
1980
FIGURE 2
CAPITAL EXPENDITURES PROGRAMMING FOR CORRECTIVE ACTION
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requirements for each problem area, and develop a schedule of
interim objectives leading to the control of pollution from each
source. The overall strategy is to assure that the necessary
resources and technology for controlling water quality are avail-
able in accordance with an established program containing a firm
time schedule.
Strategic elements in the overall plan include:
(1) Actions to assure adoption of federally-approved water
quality standards by all States and other Federal juris-
dictions, followed by periodic upgrading of the standards.
(2) Actions to encourage States to develop implementable plans
to close the gap between existing levels of water quality
and those required by water quality standards by:
- Increasing Federal and State emphasis on good planning
for river basins and regional/metro areas.
- Requiring that federally-subsidized construction
projects conform with approved water quality plans.
- Assuring that the priorities established in State
program plans (one-year and five-year lists) are con-
sistent with the schedules contained in approved
basin or regional/metro water quality plans.
(3) Annual, qualified, objective analysis of each State
program to identify strengths and weaknesses, activeness of
legislative base, inactivity of funding, and successes as
measured by progress in attaining water pollution control
goals.
1.4.3 Critical Path
In view of the complex program and responsibility interactions, the
total effort must be planned and programmed within a critical path
concept which will assure that all actions are fully and effectively
implemented and coordinated. An optimum milestone program capable
of achieving national and regional objectives is set forth in
Figure 3. This reflects the manner in which standards, plans,
research, management, and other considerations must interact. This
schedule assumes no constraints on resources, and is restricted only
by the physical limitations of time for construction and technologi-
cal innovation. Major milestones of each element of the optimum
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program are indicated and estimated dates given for 100 percent
compliance with the water quality and effluent standards.
The proposed program is also shown in critical path format in
Figure 4. In this case the same program elements and milestones
are shown, hut the projected effects of the lower level of achieve-
ment of poals are shown in terms of an increased time of
accomplishment.
A comparison of the relative achievement of goals is shown in
Figure 5.
1.5 MAJOR POLICY ISSUES
A number of major policy issues must be considered. These are
summarized as follows:
Basin Planning - determining and securing the Federal/State and
local funding needed to develop the implementable river basin,
metropolitan and regional plans which are necessarv for effective
program management and cost-effective construction.
Operator Training - determining the most effective means of assuring
a sufficient supply of trained personnel to operate municipal waste
treatment facilities.
Reassessment of Construction Grant Program - re-evaluating the
Nation's municipal waste treatment facility requirements and
determining a course of Federal action following completion of the
President's $]0 billion current program.
Combined and Storm Water Sewer Discharges - determining the role of
the Federal Government in assisting State and local agencies to
control combined and storm water sewer discharges.
Water Quality Standards - legislative action to:
- Extend standards to all navigable and ground waters.
- Permit direct Federal enforcement action on all waters when
a violation of State/Federal standards occurs.
- Extend standards to the contiguous zones of coastal waters.
- Add effluent requirements to standards.
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- Adopt completed basin plans as the implementation plan of
water quality standards.
- Re-evaluate use levels in light of water resource requirements
for the future.
- Encourage State and local responsibility for compliance with
standards through effective use of Federal assistance and
enforcement.
- Determine the degree of certainty of information required to
enforce standards legally in a cost-effective program.
- Establish an aggressive program to assure adequate control
and management of high quality ground water.
Research, Development and Demonstration - maximizing the
effectiveness of meeting scientific information requirements in
a goal-directed, cost-effective manner.
- Realigning RD&D priorities in light of the above strategy.
- Ensuring proper mission of federally-sponsored research in
the industrial sector and alternative means of carrying
out programs to control industrial waste pollution.
- Evaluating the water quality requirements research program
and assessing the need for additional laboratory facilities.
- Providing a mechanism for rapid and complete transfer of
technology from research to user.
Industrial Sewer Outfalls - transferring responsibility for
prescribing water quality regulations for industrial sewer outfalls
on navigable waters from Corps of Engineers to FWOA.
Refuse Act of 1899 - transferring jurisdiction for enforcement of
the Refuse Act of 1899 from Corps of Engineers to FWQA.
Estuarine Management - establishing a national estuarine management
system.
Federal Lands - establishing FWQA responsibility, in conjunction
with the Department of the Interior, for control of pollution on
public lands.
Vessel Standards - determining the role with U. S. Coast Guard in
21
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spills, hazardous materials, incident, and vessel wastes as set
forth in the Environmental Quality Act of 1970.
Centers of Excellence - establishing centers of excellence for long
term investigation in all environmental sciences; and determining
appropriate roles for the academic and private industry sectors.
National Environmental Library - evaluating needs and benefits
associated with a specialized library resource, equivalent to the
National Library of Medicine.
Agricultural Wastes - determining institutional and economics
alternatives for controlling agricultural sources of pollution
(e.g., subsidies to farmers); assessing feasibility of assigning
vrater pollution damages caused by pesticides and other agricultural
chemicals to the users or suppliers of such materials.
Hazardous Materials - defining "hazardous materials" in a precise,
workable manner related to the effects on water quality.
Combining Industrial-Municipal Treatment - determining the extent
of Federal support and participation in the control of wastes in
which industrial wastes are combined with municipal wastes.
Oil and Mine Wastes - determining extent of Federal participation
in controlling wastes from mines and wells.
Dredging - determining relationship and division of responsibilities
between FWQA and other Federal agencies in regard to dredging
practices on spoil disposal.
Coordination with Water Resources Council - FWQA must arrange for
effective participation in the Water Resources Council.
1.6 LEGAL CONSTRAINTS AND LIMITATIONS
There are important constraints which must be considered:
(1) The proof of noncompliance with standards must be
supported by information which will be accepted by the
courts. This information usually includes such elements
as expert testimony, scientific evidence, and data
concerning the violation. A study to determine the extent
of information requirements for enforcement will be made
during 1971.
22
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(2) The present legislation restricts FWQA activities within
areas of State jurisdiction. There are overriding
reasons, however, for the legislation to be amended to
permit FWQA to have a greater impact. The proposed
strategy as shown in Figure 1 recognizes these limitations
and provides the means for addressing them.
Absence of precise effluent limitations makes enforcement of the
water quality standards difficult in metropolitan areas. Precise
effluent limits would permit the specification of the permissible
discharges for any point source of waste.
Resource and program deficiencies in many States require flexible
Federal programs which can be tailored to each State's clean water
needs and its organic accomplishment capabilities.
23
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PAGE NOT
AVAILABLE
DIGITALLY
-------
0 10 20 30 40 50 60 70 80 90 100%
I 1 1 1 1 1 1 1 1 1 1
WATER QUALITY
STANDARDS
PLANNING AND
SYSTEMS ANALYSIS
PROGRAM
MANAGEMENT
MUNICIPAL
WASTES
INDUSTRIAL
WASTES
AGRICULTURAL
WASTES
OTHER URBAN
WASTES
OIL AND HAZARDOUS
MATERIALS SPILLS
MINING AND
WELLS
OTHER WASTES
(Based on Financial Summary Data FY 1971 - 1976)
FIGURE 5
PERCENT COMPLETION PROPOSED PROQRAM BY JULY 1976
(OPTIMUM PROGRAM = 100%)
29
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SECTION 2
WATER QUALITY STANDARDS
2.1 THE IMPORTANCE OF STANDARDS
2.2 PROPOSED ACCOMPLISHMENTS
2.3 LEGISLATIVE NEEDS
2.4 DEFINITIONS
2.5 STATUS OF STANDARDS
2.6 INTERRELATIONSHIPS OF CRITERIA, STANDARDS,
RELATIONS, AND GOALS
2.7 SUPPORTING EFFORTS
2.8 DESCRIPTION OF THE WATER QUALITY PROGRAM
31
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SECTION 2
WATER DUALITY STANDARDS
2.1 THE IMPORTANCE OF STANDARDS
The refinement and extension of water quality standards constitute
the principal and nonsubstitutable element in the strategy for
attainment of water quality goals on a national basis. The standards
fill a unique role in:
(1) Establishing specific river basin/estuarine area water
quality goals through a public review and identification
of desired uses and the association of these uses with
scientifically established criteria.
(2) Providing a future, publicly-visible timetable for
corrective actions for achieving the accepted goals.
(3) Providing mechanisms, however imperfect under existing
law, whereby legal and public opinion pressures can be
placed upon polluters.
(A) Reassessing the public's desire for quality of water.
(5) Providing a nuantitative framework within which to
construct detailed technical plans for mid-range and
long-term pollution abatement and prevention efforts.
2.2 PROPOSED ACCOMPLISHMENTS
Major milestones included in the proposed program are as follov/s:
(1) Full approval of interstate water nualitv
standards. Jun 1971
(2) Regulations for establishing effluent
standards. Jan 1972
(3) Regulations for extending standards and
supporting criteria to navigable waters. Jan 1972
32
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(4) State adoption of affluent control measures. Jun 1972
(5) State adoption of standards for navigable
and ground waters. r>ec 1972
(6) Federal approval of effluent standards. Jan 1973
(7) Federal approval of standards for navigable
and ground waters.
Jun 1973
(8) Operational monitoring system for assuring
compliance with all water quality standards. Jan 1976
2.3 LEGISLATIVE NEEDS
Under present Federal law, and under the Administration's legislative
proposal, the States have the first opportunity to establish,
implement and enforce the water quality standards, including the
water oualitv criteria and the effluent requirements, applicable
to their x^aters. The extent of subsequent Federal involvement
and participation is in need of clarification.
The application of water quality requirements without regard to the
circumstances of geography necessitates (1) extending the standards
authority of the Federal Water Pollution Control Act, as amended,
to navigable, ground, and other waters not presently covered,
and (2) eliminating the requirement of gubernatorial consent to
court action to abate intrastate pollution in violation of State/
Federal standards.
Effective utilization of the water quality standards concept is
substantially dependent upon Congressional approval of perfecting
amendments, including injunctive powers, as desired in Section 10 of
S. 3471.
2.4 DEFINITIONS
Water duality standards consist of the follox^ing parts as illustrated
in Table 5.
Uses - A delineation of the water uses on a geographic basis
for a given water body, coastal area, or stream reach.
33
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THE COMPONENTS OF
WATER QUALITY STANDARDS
USES
CRITERIA
IMPLEMENTATION PLANS
Categories such as:
Measurable water quality
requirements such as:
Waste discharge requirements
including such items as:
Body-contact recreation.
Drinking water supply.
Industrial water supply.
Trout and other fisheries.
Shellfish growing and
harvesting.
Aesthetics and general
recreation.
Concentrations of dissolved oxygen,
suspended solids, carbon
chloroform extract, mercury,
phenol, etc.
Numbers of E. Coli, fecal coliforms,
viruses, etc., per unit volume
of water.
Temperature ranges and rates of
change.
Physical degradation.
Toxic components
Type of treatment.
Percentage removal.
Absolute quantifiable limit
of discharge per unit of
time.
Specified time schedule for
abatement as follows:
Submittal of preliminary plans
and specifications.
Submittal of final plans and
specifications.
Completion of financing.
Award of contract(s).
Completion of construction.
Commencement of operation.
Testing and certification.
Continued compliance and
periodic testing to assure
compliance.
TABLE
-------
Criteria - A specification of the physical, chemical, and
biological levels that must be achieved to make possible the
specified water uses.
Implementation Plan- A schedule for the control of pollution
sources to achieve the water quality goals and a statement of
the manner in which these goals are to be obtained.
Nondegradation Policy- The Secretary of Interior's nondegra-
dation statement of February 8, 1^68, is a major component of
the standards and is an important mechanism for accomplishing
stated water quality objectives.
2.5 STATUS OF STANDARDS
The present status and efficiency of water quality standards are
best judged from two points of view.
First, judgment of the status of standards is based on the assumptions
that the currently acceptable water use designations are valid; the
criteria are consistent with National Technical Advisory Committee
recommendations; and the implementation plans are adequate to meet
the Nation's water quality goals.
Of the 54 States and jurisdictions, 23 have been determined to have
fully adequate standards and, therefore, have received approval by
the Secretary of the Interior. Standards for the remaining 31
States have been partially approved with certain exceptions stand-
ing in the way of full approval. Full approval is expected by
June 1971.
Most, if not all, approved standards will need to be refined.
Revision will be needed from time to time to reflect new knowledge
about criteria or changed public desires for water uses and
periodic updating of their implementation plans.
Second, there are several basic deficiencies in the currently
accepted "ground rules" for water quality standards.
(1) Current scientific knowledge about the effects of water
quality on water uses is not sufficient to establish
legally tight and readily enforceable criteria. Enforce-
ment against violations of criteria can be severely
hampered by the necessity for judicial review of the
criteria themselves. The solution is better information
on the pollutant-use relationship.
35
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(2) The implementation plans of the standards are
administratively and legally weak from the following
standpoints: their treatment requirements are not hased
on a precise determination of effluent quality needed to
comply with the criteria; their abatement schedules fail
to consider fully the priority of abatement action as
determined by the relative pollutional impacts of waste
sources or the financial aspects of abatement; they
generally fail to provide abatement requirements for waste
waters from other than municipal or industrial point
sources. These deficiencies derive basically from the
lack of comprehensive, detailed basin and area plans, and
will require the development of such clans for correction.
(3) Generally, the capability to enforce readily the standards
is encumbered by time-consuming and limiting legal require-
ments. Also, present standards enable taking abatement
action only after the fact.
(4) In many of the standards, the designation of the uses to
be protected lack desired specificity which can, if brought
to issue, complicate the enforcement of the standards.
This deficiency derives principally from the lack of
information which forms the basis for public determination
of the uses. This deficiency could be corrected by
adequate basin and area plans, which would provide such
input.
2.6 INTERRELATIONSHIPS OF CRITERIA, STANDARDS, REGULATIONS, AND GOALS
2.6.1 Present and Future Water Quality Standards
Water quality standards serve two purposes: to protect existing
high quality waters; and to provide for the restoration of degraded
waters. Standards must be continually upgraded to fulfill ever-
changing needs of our society. A hierarchy of levels for present
and future water quality standards is presented in Table 6.
Present water quality standards are in some cases sufficient to
guarantee acceptable quality. In general, however, present standards
are not of the acceptable level since nonpoint sources are not
included in implementation plans, nor do they account for potential
future needs. In some cases criteria rest upon questionable
scientific foundations.
36
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TABLE 6
PRESENT AND FUTURE LEVELS OF WATERS QUALITY STANDARDS
Level
Ultimate
Optimum
Acceptable
Current
Goal
Water uses
Quality
criteria
Implementation
Plan
Goal
Uses
Criteria
Implementation
Plan
Goal
Uses
Criteria
Implementation
Plan
Goal
Uses
Criteria
Implementation
Plan
Present
Man and nature in complete harmony
All known uses
Complete scientific and technical
knowledge to accomplish above uses
Control of all manmade effects on the
water environment
Attainment of uses which allow man and
nature to live in mutual co-existence
Present and major potential water uses
Knowledge of pollution-use relationship
to accomplish enhancement for stated
uses and sources
Control of all point and nonpoint
existing sources
Minimize man's deleterious effects on
nature within present economic constraints
Present and some potential beneficial uses
Knowledge of pollution-use relationship
to accomplish enforcement for stated
uses and sources
Control of all existing point sources
Minimize man's deleterious effects
on nature within resources available
Some or all present uses
Knowledge of pollution-use relationship
to accomplish maintenance for uses and
sources.
Control of major point sources
Future
Expanding population of man and nature in complete
harmony
All known and foreseeable uses
Complete scientific and technical knowledge to
accomplish above uses
Control of all roanmade and deleterious natural
effects on the water environment
Attainment of uses which allow man with an expanding
population and nature to live in mutual co-existence
All potential uses
Knowledge of pollution-use relationship to accomplish
enhancement for stated uses and sources
Control of all point and nonpoint existing and
potential sources
MinimiEe man's deleterious effects on nature
Use to meet all future demands
Knowledge of pollution-use relationship to accomplish
enforcement for stated uses and sources
Control of all existing point and nonpoint sources
Not compatible with national goals.
-------
The acceptable program to achieve compliance with standards can be
accomplished with existing and potential resources. The program is
based on compromise and choice. A decision must he made concerning
x^hat wastes will be controlled. A factor in this choice will be
whether or not gains in water quality justify the costs. To carry
out this program, technical knowledge for upgrading criteria must be
increased to effect control of all existing point sources.
2.6.2 Probability of Accomplishment
In most cases the present standards are at, or very close to, the
acceptable in terms of uses and criteria. Thus, the acceptable
level as defined in this chart has a high probability of accomplish-
ment under the proposed program, since quality criteria have been
recommended and adopted by most States to control sources of pol-
lution.
Implementation plans in current standards neither guarantee the
achievement of water quality when completed nor assure cost-effective
abatement of pollution. In many cases, this is due to lack of
planning to account for nonpoint sources as well as reluctance of
communities to take advantage of economies of scale through effective
regionalization.
The basin planning program provides the means for bringing current
implementation plans to acceptable levels. The resulting plans,
based upon adequate technical and economic information and involving
the total participation of the jurisdictions involved, will not only
assure the achievement of water quality, but will also assure that
it is achieved in a cost-effective manner.
2.6.3 Legislative Program Regulatory Requirements
In order to apply water quality requirements equitably and effectively
without regard to the circumstances of geography, the standards
authority should be applied not only to interstate waters, but also
to intrastate, navigable, and ground waters not presently covered.
Gubernatorial consent to court action to abate intrastate pollution
in violation of State/Federal standards should be removed as a
prerequisite to Federal actions.
An important statutory need is the authority for FV'QA to provide
leadership to establish uniform national effluent standards as a
component of water quality standards. Uniform effluent standards
would permit the specification of the permissible discharges for
each municipal and industrial waste source and would clearly indicate
to each waste discharger pretreatment requirements he must meet.
38
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Federal legislation has been proposed to authorize the establishment
of effluent standards. Adoption of this legislation would be a major
step forward in increasing the effectiveness of local water pollution
control programs.
In addition, authority to institute prompt enforcement measures
including injunctive action to prevent violations of water quality
standards is needed.
2.7 SUPPORTING EFFORTS
2.7.1 Adequate Monitoring of Water Quality
Legal substantiation of violations and the feasibility and reasonable-
ness of subsequent abatement actions depend on good information. An
issue is the degree of certainty of information required to assure
compliance versus the cost of obtaining the information in a timely
manner.
There are approximately 2 million miles of navigable and interstate
streams, 12 thousand miles of coastline, 61 thousand square miles of
Great Lakes, 65 thousand square miles of other inland open waters,
and 1.5 million square miles of ground water aquifers in the United
States. These waters, if covered by water quality standards, must
be monitored in a manner sufficient to identify noncompliance with
standards and the causes of noncompliance.
These conditions point to the need for development of systems,
probably involving a high degree of automation, to provide data
in support of enforcing standards, irrespective of whether the
standards are based on receiving water characteristics or effluent
characteristics. As a part of the standards and planning programs,
needs will be determined and appropriate Federal, State and local
responsibilities established so that appropriate action can be
implemented.
2.8 DESCRIPTION OF THE WATER QUALITY PROGRAM
2.8.1 Establish Strategy
There are two paths along which Federal action can proceed:
Federal assistance and Federal enforcement. See Figure 6.
These mechanisms are mutually supportive in the achievement of water
quality goals. Under both paths the State retains an important
role. The State should act promptly and vigorously to secure
39
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STEPS WHEN PRiVIOUS
STEPS FAIL
STATE AND LOCAL PARTICIPATION
STATE PROGRAM
CONSTRUCTION
PLANNINC
RESEARCH AND DEVELOPMENT
TRAINING
ENCOURAGE STATE AND
LOCAL ACCOMPLISHMENT
OF COMPLIANCE
FEDERAL
PARTICIPATION
FIGURE 6
FLOW DIAGRAM OF STRATEGY TO ACHIEVE COMPLIANCE WITH STANDARDS
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voluntary compliance with standards. In cases where 180-day notices
of violations of standards have been issued every effort must be
made to secure voluntary compliance prior to court action.
Each of the paths in the flow diagram of strategy (Figure 6)
indicates decisions that must be made for specific cases as they
arise for any given situation. Particular paths or mixtures of
paths will be most cost-effective.
2.8.2 Priorities for Acquiring Information to Upgrade Criteria
Upgrading of water quality criteria is based upon obtaining essential
information on the pollution-use relationship. In Table 7
priorities have been established for each of eight classes of pol-
lutants for obtaining short-term information needed to achieve
acceptable levels of criteria and longer-term information needed
to achieve optimum levels of criteria.
Attention must be focused on areas where knowledge is most deficient.
A research program has been developed for providing analytical
information for upgrading criteria. Timing is very important since
some areas of research cover long-term intervals. Short- or long-
term research programs for criteria must thus be matched against
the state of technology of measurement and technology of control,
2.8.3 Program Milestones
Achieving the national water quality objectives by 1976 will require
the successful and timely accomplishment of tasks shown on Figure 7.
The key element is to promulgate by January 1972 Federal regulations
for water quality standards and effluent control as they pertain to
all interstate, intrastate, navigable, and ground waters.
To accomplish the overall objectives, eight supporting program
activities will require accelerated emphasis and resources:
(1) State water quality standards for all interstate streams
must be completed and approved.
(2) Water quality research must determine and develop
information to support and substantiate improved
criteria and effluent controls.
(3) Economic and practicable treatment techniques must
exist for each significant industrial waste.
41
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PRIORITIES OF OBTAINING INFORMATION
TO UPGRADE tfATER QUALITY CRITERIA
Criteria
Categories
Oxygen Demanding
Wastes
Infectious Agents
Plant Nutrients
Synthetic Organic
Chemical Exotics
and Pesticides
Inorganic and Miner
Substances
Sediments
Radioactive
Materials
Heat
SHORT TERM LONG TERM
Information Needs Information Needs
Priority
by
Level (1)
L
H
M
H
•al
L
M
M
H
Priority
by
Rank (2)
8
2
5
1
7
6
h
3
Priority
by
Level (1)
L
M
H
H
L
H
M
M
Priority
by
Rank (2)
8
6
1
2
7
3
U
5
1)
M
L
High
Medium
Low
2) 1 is highest priority
8 is lowest priority
TABLE 7
42
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(4) A program for continual updating of information on
water quality criteria must be operated on a current
basis.
(5) A program to revise water quality standards based upon
basin planning studies and water quality criteria research
and development must be initiated.
(6) An expanded national water quality monitoring network
must assure compliance with standards and effluent
controls.
(7) Standards and procedures for effective and analytical
quality control must be developed. This is essential
to support key legal actions in enforcement cases.
(8) A cooperative but aggressive enforcement program must
be implemented to guarantee high water quality.
43
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PAGE NOT
AVAILABLE
DIGITALLY
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SECTION 3
BASIN PLANNING AND SYSTEMS ANALYSIS
3.1 RELATIONSHIP OF PLANNING TO ACHIEVEMENT OF WATER
QUALITY STANDARDS
3.2 SPECIFIC OBJECTIVES
3.3 IMPORTANCE OF BASIN PLANNING
3.4 FEDERAL/STATE RELATIONSHIP IN PLANNING AND
COST-SHARING
3.5 PROGRAM OUTLINE
3.6 PROGRAM MILESTONES
47
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SECTION 3
BASIN PLANNING AND SYSTEMS ANALYSIS
3.1 RELATIONSHIP OF PLANNING TO ACHIEVEMENT OF WATER QUALITY
STANDARDS
An effective plan is the second basic element in the national
water quality strategy. The major increases in funds for assist-
ance to communities for construction of waste treatment plants
($214 million to $1,000 million) in a one-year period creates a
crisis need for immediate plans for critical basin and metropolitan
areas. In response to the situation FWQA has conducted a detailed
review of needs (August 1970) and has developed planning priority
schedules for each of the Nation's river basins. The following
program proposals are based upon the in-depth analysis.
For the FY 1971-1976 period, the primary objectives of the planning
program are:
(1) To assure a high level of certainty that water quality
standards implementation plans will achieve in-stream
goals.
(2) To maximize the cost-effectiveness of the massive
investment in pollution abatement actions required to
achieve national water quality objectives.
For the longer range, the objective is to improve and assure
maintenance of established water quality standards.
3.2 SPECIFIC OBJECTIVES (keyed to Figure 9)
The following basic program objectives have been established:
(1) Target Date - January 1971
- Develop and issue "Planning Guidelines" for general
improvement of ongoing planning.
- Establish needed planning data system.
48
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- Initiate required Stage One planning.
- Develop simple mathematical basin models to screen
proposed construction in conjunction with available
plans for 200 highest priority basins; initiate
requests for contract proposals (RFP's) for more
fully developed models in the first 100 basins.
- Initiate development of lake and coastal models.
(2) Target Date - June 1971
- Complete development of models for 100 basins.
- Continue Stage One plan development.
(3) Target Date - January 1972
- Complete all data collection required for Stage One
planning and furnish to Water Quality Standards
Program.
- Begin development of additional lake and coastal mode
(4) Target Date - June 1972
- Have available screening models for 200 basins for
application.
- Complete first coastal model.
(5) Target Date - January 1973
- Complete Stage One planning.
- Complete development of all lake models.
- Begin required Stage Two planning.
- Begin required Stage Three planning.
(6) Target Date - June 1973
- Complete required coastal models.
-------
(7) Target Date - January 1974
- Complete Stage Two planning incorporating revised
water quality standards.
(8) Target Date - January 1975
- Complete Stage Three planning for all major problem
areas.
(9) Target Date - January 1976
- Complete Stage Three planning in all areas where
required to assure completion of required
implementation schedules and adoption by June 1976.
3.3 IMPORTANCE OF BASIN PLANNING
Previous efforts to create useful basin, regional and metropolitan
plans were deficient in that they did not contain implementation
as a "leading edge."
A properly prepared plan:
(1) Provides the implementable and enforceable vehicle for
achieving water quality standards.
(2) Identifies specific water quality management goals for
public and/or private action.
(3) Identifies water quality management problems, needs and
priorities.
(4) States policies for the use of resources in meeting watei
quality goals.
(5) Determines impact of effluents and other pollutant loads
on receiving water quality.
(6) Determines treatment needs or other remedial actions on
difference between existing (or projected) water quality
and quality prescribed by standards.
(7) Programs capital improvements and other expenditures
for managing water quality on the basis of relative
urgency and cost-effectiveness, together with
50
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definitive arrangements for financing these expeditures
(at least in the earlier years of the program).
(8) Identifies how related plans and activities will be
coordinated with water quality management.
(9) Proposes necessary supporting regulatory and
administrative measures.
(in) Identifies who is responsible for actions to carry out
the plan.
(11) Provides a mechanism for plan updating.
3.4 FEDERAL/STATE RELATIONSHIP IN PLANNING AND COST-SHARING
A 1970 survey conducted by FUQA disclosed that only 35 of 760 areas
(metro, regional or basin) have plans of even limited utility in
terms of providing the needed planning products.* The planning
status nationwide has been evaluated and the areas have been
ranked, considering population, planning cost, investment, and
other factors. Thus, the magnitude of the remaining planning job
is great and the time is short in view of projected national
investment. Figure 8 indicates the effect of establishing a
national priority for the planning effort. With priorities
established to undertake planning in the heavily populated
metropolitan areas and associated river basins first, and a lower
order of priority for less populated and less complex problems, it
can be seen that a large investment in planning in early part of
the FY 1971-1976 program period will impact a majority of the
population and much of the proposed investment in municipal
treatment facilities. The use of a national priority to guide the
plan development would assure a considerable cost-effective impact
on construction of waste treatment facilities. However, all
planning areas would require some level of planning to assure
meeting the water quality objective.
The magnitude of the planning need is determined by the number of
metropolitan or regional planning areas which require improvement
*The 760 areas may be broken down into subareas on a geographic
basis, resulting in a total of 1300 areas and subareas as well as
approximately 700 estuaries.
51
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100
Q
1
§
H
o
H
a
8
«
S
80
60
40
20
0
CONSTRUCTION FUNDS EXPENDED
POPULATION SERVED
50
100
150
200
250
300
PLANNING EXPENDITURES BASED ON PROJECT PRIORITY
($ MILLIONS)
FIGURE 8
IMPACT OF PLANNING ON
CONSTRUCTION INVESTMENT AND POPULATION
52
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or the development of plans, and by the degree of utility of
presently available plans. In terms of planning areas, the
general utility of planning presently available is:
Plan Adequacy for
Water Quality Management
No Utility
Little Utility
Limited Utility
Full Utility
Total Need
Number of
Areas
591
134
35
0
760
The above evaluations of plan utility assume three levels of
planning defined solely in terms of their utility in the
decisionmaking processes for achieving water quality standards.
The classifications are full utility, limited utility, and little
utility as follows:
Name
Full Utility
Limited Utility
Little Utility
Definition
Meets planning required for construction
grants regulations (18 CFR 601). Provides
information on both significant point and
nonpoint sources. Utilizes systems
approach integrating facility construc-
tion, management, financial, and
legislative components. Valid predictive
models are available where required.
Meets planning required for construction
grant regulations (18 CFR 601). Inconclu-
sive information on nonpoint source
pollution. Limited systems approach
utilized insofar as data permits. Pre-
dictive model not fully operational but
useful. However, the plan may be used
for regionalization considerations,
short-term investment and for partial
analysis of the adequacy of existing water
quality standards.
Does not meet planning required for
construction grants regulations (18 CFR
601). Major factors ignored or
insufficient detail available. Single-
purpose action not related to other actions,
53
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Strong reasons exist for an appropriate combination of Federal,
State and local planning effort. Broad Federal guidance and
support could assure the proper perspective and priority considera-
tions. State establishment or designation of responsible planning
agencies coupled with State participation and coordination with
these agencies would assure stronger State water quality programs
and consistent plans for adoption as part of the water quality
standards. Development of plans by local governments as the
responsible planning agencies would provide the grass roots
involvement essential to plan implementation.
Thus the combination of Federal stimulation, guidance and support
of State and local coordinated planning would get the needed plans
developed and implemented in a priority order and timely fashion
to assure meeting national water quality objectives.
The program recognizes the urgency of need as viewed against the
massive construction grants program and the general lack of
immediate financial resources at the State and local levels. It
is proposed that this problem be offset by including a planning
grant financial assistance program to cover up to 75 percent of
the costs of plan development. The remaining 25 percent would be
required from State and local sources. The rationale for this
approach rests upon three major considerations.
(1) Under the regulations published July 2, 1970,
18 CFR 601.32-33, the States and local agencies are
required to have basin and metropolitan or regional
water quality management plans as a condition to
receiving Federal construction grants for waste treat-
ment facilities. These commit the local planning
agencies together with the States to undertake a level
of planning—with or without Federal assistance—
necessary to achieve water quality standards and to relate
to proposed facility construction.
(2) Based on past experience, it is unrealistic to expect
the local agencies and the States to undertake this
level of planning if the level of Federal support
would be less than the usual half of the costs of a
needed public program. Already hard-pressed for
resources to meet their many obligations and commit-
ments, the local communities lack the resources adequate
to accomplish the task. The question of fund
availability becomes even more pressing in the face of
the urgency to develop required cost-effective plans
ahead of the needed facility construction.
54
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(3) Effective pollution control requires development of
intergovernmental agreement on nn nreawide basis botVi
in netropolitan/regional and basin areas. Additionally,
pollution control is a regulatory function. Tlie.se
two aspects suggest that the share of Federal support
of planning reouired to achieve water nuality objectives
should be greater than half. Other Federal grant
programs have required up to a 90 percent Federal share
to assure effective program implementation.
3.5 PROGRAM OUTLINE
The overall goal of the program of water nuality planning is to
promote, guide and support the establishment of effective plans,
acceptable at the Federal, State and local levels. The proposed
program provides for staged development by the States and the
local planning agencies of needed plans in sufficient detail to
maximize, the return from the $10 billion investment in municipal
treatment facilities to which the Administration is committed.
At the same time, the staged development will lead to full
utility plans necessary to achieve F.JOA water qualitv objectives
by the end of FY 1976 and will include adoption of such plans by
the States as Water Quality Standards Implementation Plans.
The proposed program provides for continued participation by FWQA
in Federal interagency water resources planning and activities.
The Planning program would be accomplished in three stages:
Stage One is directed toward maximizing the cost-effectiveness
of planning on the construction grants program. As an
aggregate, plans developed in this stage would be defined as
''limited utility." However, individual plans will vary
widely in scope and level of detail—the most detail in plans
dealing with the more complex situations.
Stage Two will complete the planning required to obtain
optimum cost-effectiveness in the construction grants
program. In addition to providing a greater level of
detail and broader scope, where necessary, all plans
completed through the end of this stage will incorporate
the requirements of the new water quality standards
regulations.
Stage Three planning will be of greater scope and detail
and will provide implementation schedules for the new
55
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water quality standards. Solutions and schedules for
abatement of pollution caused by nonpoint sources will
be included.
3.6 PROGRAM MILESTONES
The planning program, implemented under 18 CFR 601 et seq., includes
limited assistance through the funds available under the planning
grant program authorized by Section 3(c) of the Federal Water
Pollution Control Act, as amended. Securing additional funds up to
the full amount required before April 1971 will allow timely develop-
ment of the planning program. This will, however, slightly lessen
the impact on construction plans than had the funds been available
in the first quarter of FY 1971.
Several actions are currently underway without a large Federal
Assistance Program that will permit earliest possible implementa-
tion of the proposed planning program. Preliminary guidelines for
implementing 18 CFR 601 have been issued and discussion meetings
with all States are in process. Prior to January 1971, final
planning area boundaries will be determined; planning agencies for
each area will be identified; preliminary guidelines will be revised;
and planning schedules will be developed in line with the national
planning priority index.
When the proposed program is approved, current activities will be
accelerated, beginning with a series of meetings with State and
local officials to apprise them of the expanded Federal assistance
to become available and of the program requirements. Applications
will then be developed for future funding on a priority basis
such that when funds become available, delay in committing the
funds will be minimized.
Milestones have been established as shown in Figure 9 which are
consistent with and predicated upon launching the fully funded
planning during the last half of FY 1971.
56
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DIGITALLY
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SECTION 4
NATIONAL PROBLEM AREAS
4.1 MUNICIPAL WASTES
4.2 INDUSTRIAL AND POWER PLANT WASTES
4.3 AGRICULTURAL WASTES
4.4 OTHER URBAN WASTES
4.5 OIL AND HAZARDOUS MATERIALS SPILLS
4.6 WASTES FROM MINING AND WELLS
4.7 OTHER WASTES
59
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4.1 MUNICIPAL WASTES
4.1.1. SUMMARY OF PROBLEM AND APPROACH TOWARD SOLUTION
Municipal wastes rank first in terms of waste sources affecting
the people of this country. Fortunately, this waste source also
ranks first in terms of our ability to solve the existing or
potential pollution problems it creates.
Municipal wastes, as defined here, consist of two components;
(1) domestic waste discharges, and (2) discharges to municipal
systems from industrial sources. In most municipal systems* the
industrial waste component is a significant part of the total
waste load. In assessing the overall water quality management
problem, it is advantageous to support Joint treatment of domestic
and industrial waste where appropriate.
Wastes from municipalities are significant because: (1) they are
a large source of organic material which lowers the dissolved
oxygen content of water; (2) they contain large numbers of
bacteria and virus creating a potential health hazard where
receiving waters are used for recreation and as a public water
supply, and (3) they contain nutrients that accelerate eutrophica-
tion of rivers, lakes, and estuaries.
Domestic wastes, if inadequately treated, can have the following
effects: (1) closing recreation areas to swimming, fishing, and
boating; (2) closing shellfish beds; (3) eliminating desirable
fish species; (4) denying the use of water as a public water
supply or creating taste and odor problems if a polluted water
source is used for drinking water purposes; and (5) creating
a nuisance and thereby reducing the aesthetic enjoyment of
water and adjacent land areas.
Today, the number of sewered communities in the United States is
just under 13,000 and 68 percent of the Nation's population lives
in such communities. During the next five-year period, it is
estimated that about 8,000 communities across the Nation will
construct new, improved, or expanded sewage treatment facilities.
This construction is needed primarily to meet the established
water use goals for the receiving waters. However, additional
pollution abatement facilities will be required after standards
have been achieved to compensate for a growing population and
industrial expansion. Because treatment plants have an average
life span of approximately 20 years and sewers 50 years, a
60
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continuing program of construction will be required to improve and
replace facilities. The following table summarizes anticipated
treatment needs.
Number of
Communities
Planning New, Estimated
Enlarged, Upgraded Population
or Replacement Works Served
1971 1,528 28.1 Million
1972-1976 4,375 79.8 Million
Total 1971- 1976 5,903 107.9
The waste loads from municipal systems are expected to increase
nearly four times over the next 50 years. Even if municipal and
industrial waste loads are substantially reduced through treatment,
pollution problems may continue to exist in densely populated and
highly industrialized areas where the assimilative capacity of
receiving waters is exceeded. In these areas, higher and higher
levels of treatment, approaching 100 percent, will probably be
necessary, and water supply demands will lead to ever increasing
uses of renovated waste waters.
The national cost of needed municipal waste treatment plants for the
four-year period ending with FY 1974 is estimated by FWQA at $12.2
billion (July 1970). This estimate, based on a careful and detailed
analysis of reported municipal needs, compares with an earlier
estimate of approximately $10.0 billion.* This difference is due
primarily to a series of one-time phenomena including, for example,
completion of more detailed engineering plans for major metropolitan
systems, Florida legislation which requires secondary treatment for
ocean discharges ($300 million increase), and upgrading of State
water quality standards. The cost to the Federal Government under
the Federal Water Pollution Control Act, as amended, will be determined
by the average participation percentage, presently 40 percent.
To meet the goal of bringing municipal sectors into compliance with
water quality standards, several program activities are necessary.
Various mixes of these activities can be undertaken and differing
levels of effort can be devoted to these individual activities. These
will determine the degree to which abatement of pollution from the
municipal sector is achieved and the extent to which the goal of
water quality standards compliance is obtained.
* The Economics of Clean Water,U. S. Department of the Interior,
Federal Water Pollution Control Administration, March 1970.
61
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The basic program activity is the Construction Grants program which
will assist local governments in constructing about 8,000 new,
improved or expanded waste treatment facilities during the next
four years. This activity will relieve the backlog of municipal
waste treatment needs as they would otherwise exist in 1974, that is,
the present backlog plus additional needs arising from population
growth and obsolescence. With the backlog eliminated by 1974, the
Construction Grants program can then concentrate on the problems
arising from population growth, obsolescence, and, in some cases,
subsequently upgraded water quality standards adopted to meet
unanticipated water use needs. Eliminating the backlog in treatment
plant construction, however, will require a substantial restudy of
the Federal role, if any, in meeting future community needs for
repairing, replacing, modernizing, and expanding waste treatment
systems.
Treatment plants, to be effective, must be operated efficiently.
FWQA's strategy includes a program of manpower development and
training—operators, managers, inspectors, and designers—and issuance
of technical bulletins and manuals on improved plant operations.
The strategy includes BD&D in new technologies such as nutrient
removal, waste water reuse and adsorption of organic materials as
well as in improved methods of operating plants employing current
technology. It also includes enforcement activities to prescribe
treatment levels, maintain implementation schedules, establish
effluent requirements, and upgrade water quality standards.
The FWQA operation and maintenance program will provide technical
guidance and support of State inspection and maintenance programs,
rather than a massive Federal inspection effort. The FWQA program
elements will include technical bulletins and guidelines, an objective
quantified inspection process, a statistically-sound system for Federal
validation of State programs, and direct inspection of federally-
operated facilities.
Trained manpower will be needed to operate and maintain waste
treatment plants. The need for skilled operators will increase at
least 30% during the planning period with an ultimate need of
32,000 persons. The need for semi-skilled and higher skill levels
will also increase to reflect the increased number of secondary
and tertiary treatment plants and the demand for reliable effective
operations. The proposed training programs include some carried
out under the Department of Health, Education, and Welfare and the
Department of Labor.
The needs for skilled operators and training programs are presented
in Table 8.
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ESTIMATE OF EMPLOYMENT AND TRAINING NEEDS
Manpower Engaged in Water Quality Activities
Manpower
Category Activity
Operators
Local
Federal
Employment
1970 1975
25,000 32,000
1,000 1,500
Training Needs/Year
New Hires
Expansion Attrition Total
1,1*00
100
2,800
200
U,200
300
Skill
Improvement
7,000
300
*Total
11,200
600
OJ
TABLE 8
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4.1.2 ANTICIPATED ACCOMPLISHMENTS FOR PROPOSED PROGRAM
Fiscal Year 1971
-Issue design and operation and maintenance guidelines
and periodically publish technical bulletins on new
developments in the municipal waste treatment field.
-Issue preliminary design manuals for nutrient,
suspended solids, organics and improved BOD
removal processes.
-Issue improved guidelines, in cooperation with
interested State and municipal organizations, to
obtain uniformity in reporting of waste treatment
plant needs.
-Develop improved data handling system for municipal
waste treatment inventories.
Fiscal Year 1972
-Issue preliminary design manual for sludge disposal.
Fiscal Year 1973 - 1976
-Complete major restudy of costs of meeting municipal
waste treatment needs, necessary for delineation of
future Federal role in financing municipal waste
treatment systems.
-Approve municipal grants on basis of conformity with
approved basin plans.
-Provide adequate training for all waste treatment
plant operators and related professional personnel.
-Demonstrate methods and design manuals for nutrient
suspended solids, organics and improved BOD removal
and improved sludge disposal methods.
-Provide advanced technology for waste water reuse
systems.
-Achieve Federal installations' compliance with water
quality standards.
-Achieve municipal waste sector compliance with water
quality standards.
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4.1.3 SUMMARY OF PROGRAMS
Differences In the levels of accomplishment for the optimum and
proposed programs are shown in Table 9.
Major milestones and interrelationships for the two programs are
identical, as shown in Figure 10.
65
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TABLE
MUNICIPAL WASTES
ACTIVITIES AND IXFACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
Construction Grants
Grants Administration
Design Engineering
Program
Operation and Mainte-
nance Program
Re-analysis of Munici-
pal Construction
Need
Manpover Deve 1 ogaient
and Training
Crerator Training
Design Engineering
Training
Flant Inspector
Training
Manpower Planning
Enforcement
Research and Develc
Bent
Nutrient Removal
Administer the 'resident's $10 billion
program along current procedures with
the exception that construction inspec-
tion, will be increased.
Establish and periodically urriate design
guidelines. Start the issuance of
technical bulletins as a mechanism for
transferring information on technologi-
cal improvements.
Establish anj update operation .''mainte-
nance and staffing guidelines; issue
ir.anuals in cooperation with the States;
inspect and evaluate the performance
.; f Federally-assisted plants; collect
ir.fonr.atic-r. rn technical assistance on
operation problems.
Re-analyze the municipal waste treat-
ment construction needs by the end of
19*7? to determine the national program
f die wing the completion cf the
President's SIC billion program.
Provide skill improvement training to
37,500 currently employed operators and
train 22,500 new operators through
several different programs.
Provide improved underground training
in design engineering to 3)^00 trainees.
Provide special course training for
3,600 plant inspection personnel.
Provide a continuing assessment of
manpower and manpower planning needs
relative to municipal waste pollution
abatement.
Provide necessary enforcement of com-
pliance with water quality standards
(it is estimated that these might apply
to about 1,300 municipalities ever the
next five years \
D«Kinstrate fully and provide design
| manuals for three-phosphorous removal
| techniques and a nitrification technique
I in FY 19*7?* —3* a devitrification and an
I acsrcnia removal technique in FY 197^»
i Provide preliminary manuals and undemon-
strated versions of these techniques
during FY 19^1 and 1972.
No change
Reduced by 2;3 in FY 1971
Jue to budget constraint.
Sajr.e a? optimum FY 1^7?-
Same as optimum
None
Slight since slack will
be picked up by greater
emphasis on extracting
design guidelines from
RB & D projects
None
Same as ortimum
Reduced by 90^ in FY 1971.
Same as optimum FY 1972-
i 07 A
Xo program scheduled
No change
Start deferred to FY 1972
No change
change
Number cf operators
trained reduced by 9»OOC
affecting adversely the
efficient operation cf
seme 750 treatment works
((37,500 + 22,500V6}.9)
Reduced number of trained
design engineers will
result in less tailored
design and greater use of
elder technology; reduces
potential effectiveness
cf $10 billion program
by about 5(&
None
Delay will postpone
improved management of
manpower needs.
None
None
66
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TABLE
(continued)
MUNICIPAL WASTES
ACTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Suspended Solids and
Organic Removal
Ultimate Waste Dis-
posal
Other Improvements in
Municipal Waste
Treatment Technology
Wastewater Reuse and
Related Technology
Basin Planning
Federal Activities
Technical Support
State Program Grants
Demonstrate fully and provide design
manuals for
- three improved suspended solids-
methods in FY 1973
- two activated carbon methods and
an ozone method for removing toxic
and other organics in FY 1973 and
197^
- three improved methods for the
removal of oxygen-consuming
materials in FY 1973
Provide preliminary manuals and undemcn-
strated versions of these techniques
during FY 1971 and 1971*.
Fully demonstrate and provide design
manuals for three improved sludge
disposal techniques in FY 1973.
Provide preliminary manuals and unden-on-
strated versions of these methods in
FY 1972.
Demonstrate fully and provide design
manuals for a variety of new and
improved technologies in the areas of
- operation and maintenance
- design methods and construction
materials
- plant instrumentatin and automation
- effluent disinfection
- sewer flow equalization
- transportable treatment plants for
subdivision installation
generally before the end of FY 19?U.
Develop and demonstrate advance waste
treatment and waste water reuse methods
and systems, sewage flow reduction
techniques and alternative municipal
waste collection systems; achieve
applicable results by the end of FY 1976
Provide planning review cf construction
grants.
Complete stage 3 plans for all basins
and ether planning areas.
Attain compliance with water quality
standards by Federal installations by
the end of 1972.
Maintain a complete and continuously
updated inventory of municipal waste
sources, treatment facilities and
abatement needs.
Provide a sufficient level of financial
assistance to the States to enable an
adequate level of activity on their
part in achieving compliance with water
quality standard by 19?6.
None
No change
N- change
None
None
.ange
None
Deferred start of inten-
sive activity in deminer-
alization and municipal
reuse to FY 1972; dropped
plans for public demon-
stration facility and
deferred training facili-
ties construction by one
year; consistent with
reduction in training
program.
No change
Special funds over normal
funds for assistance,
review and inspection cut.
No change
None
None
Reduced probability of
achieving goal by 25$ due
to decrease inspections,
review and technical
assistance staff
None
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4.2 INDUSTRIAL AND POWER PLANT WASTES
A.2.1 SUMMARY OF PROBLEM AND APPROACH TOWARD ITS SOLUTION
In terms of deleterious effects on the receiving waters, industrial
wastes are the second greatest pollution problem and impose
a higher BOD load than do municipal wastes. In terms of population
adversely affected, industrial wastes rank third, after municipal
and agricultural wastes.
In addition to the sheer volume of industrial wastes, the variety,
and often hazardous nature of these materials contribute to the
complexity and difficulty of treatment requirements. Industrial
pollutants include such dissolved components as acids, alkalies,
salts, nutrients, toxic materials, and organic compounds, and such
suspended components as organic solids, inorganic solids, and oils
and grease. The geographical aspects of the total problem are
nationwide, with the most severe effects in the industrialized
North Atlantic, Great Lakes, Ohio, and Texas-Gulf Rio Grande
water resource regions. The pollution impact of a given industry
or industry group is heaviest in the part or parts of
the United States in which it is centered.
Increasing evidence shows that a substantial—if not a
major—portion of the recent pressure on public waste treatment
capital originates in the demand for capacity to handle
wastes of industrial origin. It is roughly estimated that
factories and people make approximately equal demands on public
facilities that transmit and treat liquid wastes.
Domestic waste loadings tend to vary on an hourly basis with
morning and early evening peaks. Some industrial discharges have
pronounced cyclical patterns. Seasonal operations occur in many
industrial sectors, but the five-day work week is still the
standard for industry.
One problem peculiar to industrial wastes as opposed to
municipal wastes is the difficulty in obtaining an accurate
inventory of volumes and specific contaminants from each source.
71
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One reason is the reluctance of industry to release effluent data
that might reveal confidential information relating to processing
a volume of productions.
The program for the five-year period, FY 1972-1976, focuses on an
industrial waste control effort to establish appropriate standards
with strong and systematic enforcement. This will be augmented by
an industrial waste inventory and a research, development, and
demonstration program to produce the waste treatment technology
not presently available to enable compliance with water quality
standards. Under the proposed program, enforcement is an essential
element. A large proportion of the enforcement budget, almost
60 percent is allocated to the control of industrial pollution.
Water quality standards play the key role in defining operational
goals for abating industrial wastes. Resolving criteria for heat
discharges and toxic materials is particularly essential.
Effluent requirements provide a key element in the entire strategy.
Criteria and requirements will help Basin Planning arrive
at meaningful implementation plans; will aid Federal Activities and
States in license and permit review; and will contribute to
a positive and effective enforcement program. These elements
are essential for solving industrial pollution problems and
adhering to the water quality standards and Implementation plans.
Planning provides for a coordinated, consistent attack on water
quality problems within a river basin and assures that schedules
for treatment levels are directed to attaining goals.
In a given area, abatement schedules for industrial discharges
must be geared to those for municipal discharges to avoid negating
the water quality improvements possible under the municipal
construction grant program. Plans will be developed in basins on
a priority basis and will be oriented to take immediate and
continuing account of development of technology and effluent
requirements.
The Water Quality Improvement Act of 1970 requires a certification
of compliance with applicable water quality standards as a
prerequisite to issuing a Federal license or permit. Application
of these authorities to provisions of the 1899 Refuse Act,
administered by the Corps of Engineers, extends this authority to
most industrial plants with direct discharges.
Direct Federal licensing of power plants by the Federal Power
Commission and the Atomic Energy Commission provides the vehicle
for FWQA to assure compliance with water quality standards and
effluent requirements.
72
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Research on toxic and heat effects is essential to defining
operational goals. This is treated in detail in the paper on
water quality standards. Predictive techniques for assessing
thermal impacts are necessarv for reviewing proposed siting of
power plants and industrial works disposing of waste heat and for
determining required actions at existing plants. These activities
provide needed support to Federal Activities license and permit
reviews and to Basin Planning activities.
4.2.2 ANTICIPATED ACCOMPLISHMENTS FOR PROPOSED PROGRAM
Fiscal Year 1971
-Issue permits for discharges to navigable waters
for new establishments.
-Issue Federal permits for new power plants
contingent on meeting applicable water quality
standards.
Fiscal Year 1972
-Issue Federal permits for 10 percent of existing
establishments discharging to navigable waters.
Fiscal Year 1973-1976
-Incorporate effluent requirements into water quality
standards.
-Demonstrate technology for meeting effluent
requirements.
-Complete industrial waste inventorv.
Fiscal Year 1977
-Achieve full compliance with water quality standards
by all sources of industrial wastes.
4.2.3 SUMMARY OF PROGRAMS
Differences in the levels of accomplishment for the optimum and
proposed programs are shown in Table 10. Major milestones and
interrelationships for the two programs are shown in Figures 11
and 12 respectively.
73
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TABLE - -
INDUSTRY AND POWEH
CTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Enforcement
Industrial RI&D
Treatment Criteria
Hesearch
Analytical Methods
Thermal
Criteria fcr Water
Quality Standards
Manpower Development
an 3 Training
Research. Development
ted Demonstration
Bring action against industrial dis-
chargers violating permits, effluent
requirements or implementation sched-
ules at a rate sufficient tc bring
compliance cf all industrial sources
by ena ;f FY 1976. Major thrust of
enforcement activities will be in
industry problem solution.
Provide legal support to permit review
decisions.
Effluent criteria research by end of
FY 1971.
Prepare state-of-the-art papers for
polluting Industries by end cf FY 1972.
Earhas i £ on: rr.etal products , chem-
icals , petroleum, paper, fo.: 3, and
textiles1 development of support to
water quality standards effluent
regulations; enforcement actions and
planning by developing standards of
best performance including new
methods under development,. Major new
emphasis on "near 1CC*£" and "closed
loop" systems.
Demonstrate selected technology
by end of FY 1972
Develop predictive tools for analyzing
temperature distributions:
Streams - complete and transfer current
wcrk FY 1971.
Lakes and Seservoirs - expand effort to
have working models by end of FY 1971
Bstuarine Zone - Ocean - Develop
predictive capability by end of Fi 1972
Develop new methods of heat dissipa-
tion tc reduce costs and avoid
environmental disbenefits of current
techniaues. Evaluate environmental
consequences cf advanced power gen-
eration technology. Develop and
demonstrate methods and uses of waste
heat: agricultural season extension,
central heat systems. Demonstrate
temoerature monitoring systems related
tc operational control through feed
back.
Develop explicit effects for criteria
j establishment for industrial waste
\ product5=, particularly heat and toxic
Develop and present short courses for
State review personnel and engineers,
chemists and decision makers to assist
States in permit reviews and tc acceler-
ate technological transfer of control
methods.
Slight reduction
Inadequate budget for
FY 1971; funded in
FY 1972-1976
No change
Intensive effort
deferred one year
beginning in FY 1972
Nr change
No change
No change
No change
Nc change
So change
Project deferred one year;
tc begin in FY 1972
Increased emphasis on
permit review on Federal
activities with enforce-
ment support should
mitigate adverse impacts.
Lack of early legal
support could reduce long-
term effectiveness by 10%
Impact on Efficiency
Standards softened by
special Technology
Support studies. Major
impact will be increased
costs to private sector
in meeting compliance
regulations with less
cost-effective
technology.
None
None
Iicpact of less trained
personnel is tc reduce
effectiveness of permit
review and certification
procedures. Delay could
impact 8,000 permit re-
views fcr new establish-
ments.
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TABLE 10 (continued)
INDUSTRY AND POWER
ACTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Manpower Development 4
Training (continued)
Technical Support
Inventory and Effluent
Data
Field Studies
State Program Grants
Support State staffing needs with two
year semi-professional training programs
in industrial and sewered waste control.
Content geared to State and local
regulatory programs.
Perform manpower needs studies to deter-
mine the supply and demand of various
skills categories to assist industry in
planning and carrying out its own oper-
ator training programs.
Inventory industrial discharges to pro-
vide base information for monitoring
design, basin planning and computerized
effluent standard and permit system by
end of FY 1972.
Develop detailed effluent data on a
priority basis for Basin Planning, keyed
to match model development.
Carry out field investigations into the
long term biological effects of heat
discharge under actual operating condi-
tions by FY 1975.
Provide incentive, guidance and support
to implementing State certification
procedures for industrial discharges
(FY 1971) and effluent requirements
(FY 1972).
Water Quality Standards
Key Tasks: Establish criteria for toxic
(Note: Includes only
items of major impact
on industrial problem
solution)
Basin Planning and
Systems Analysis
(Note: Same as above
for RBP)
Federal Activities
License and Permit
Activities under
Section 21, FWPC Act
materials and thermal discharges
Develop effluent standards for industrial
discharges.
Key Tasks: Develop municipal-industrial
stream models in 200 priority basins by
end of FY 1972 and for all major basins
by FY 1975. Translate effluent standards
into explicit implementation schedules
by mid-FY 1975.
Implement for hazardous materials regula-
tions developed under Section 12(a) in
FY 1971.
Process permit applications for estimated
1*000 new establishments each year begin-
ning in FY 1971. Bring under permit
approximately 38,000 existing manufac-
turing establishments and 500 thermal
generating plants in priority order based
on impact, implementation plan and en-
forcement requirements by end of FY 1975.
Provide Federal leadership to State agen-
cies for certification procedures and for
Federal licensing and permit activities
including provis_on of Federal review
capability for water quality effects by
»r>A nf TTY 1071
Project deferred one year;
to begin in FY 1972
Deferred one year. Begin
in FY 1972
No change
No change
Project deleted
No specific additional
funds provided for this
purpose
No change
No change if FY 1971
supplemental approved
Delay State effectiveness
in controlling industrial
wastes.
Small probability (10$) of
inadequate labor eupply to
effectively staff indus-
trial works
Failure to accomplish
could reduce effectiveness
of planning construction
grants review by 50$
Failure to accomplish
could reduce effectiveness
of planning by 7556
Responsibility for pro-
viding data should be made
part of licensing and
permit conditions
Absence of special funds
may lead to inadequate
staffing and review of
discharge permits. Could
reduce probablity of
reaching compliance by
FY 1976 by 25°t
None
No change
Reduced by 2/3 in FY 1971;
full funding FY 1972-1976
None
Reduction will extend com-
pliance time by approxi-
mately one year
75
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TABLE 10 (continued)
INDUSTRY AND POWER
ACTIVITIES ABB IMPACT
ACTIVITY
Federal Industrial
Establishments under
B.O. 11507
OPTIMUM PROGRAM
Inventory needs; review corrective pro-
grams; perform eite review and technical
consultation. Implement self-monitoring
system. Beginning in Ft 1973 implement
FWQA inspection program.
PROPOSED PROGRAM
No special industrial pro-
gram provided; lover level
funding provided under
general Executive Order
11507 project under Water
Quality Standards
IMPACT
Less effective program will
reduce certainty of com-
pliance by 50%
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4.3 AGRICULTURAL WASTES
4.3.1 SUMMARY OF PROBLEM AND STRATEGY FOR ITS SOLUTION
Agricultural waste problems include pollutants related to sediment,
animal wastes, plant nutrients, forest and crop residues, inorganic
salts and minerals, infectious agents and allergens, and agricultural
chemicals. Many of these pollutants are controllable with adequate
improved agricultural and natural resource management practices;
pesticides are controllable through restrictions in use; other
pollutants require additional research to determine immediate and
long-term effects and appropriate treatment or control measures.
A deterioration in water quality results from growing crops where
the combination of land and climate makes irrigation necessary. The
consumptive use of water in irrigation-based agriculture in the
sixteen arid western and northern States contributes more than one-
half ton of salt per year to waterways for every acre of irrigated
land. Irrigation practices also contribute nutrients and pesticides
to receiving waters. Decreased fresh water discharges increase
salinity levels in estuaries with attendant biological dislocation
aggravated through diminished circulation. Reduced flows in rivers
during critical irrigation periods mav increase pollution control
costs for other wastes because of a need for treatment capacity used
only on a seasonal basis.
Major advances in livestock production have exchange range and
pasture feeding practices for confined feeding operations. Todav,
three-fourths of the Nation's livestock are finish-fed in confined
feedlots. Total production of animal wastes is approximately 1.7
billion tons, some of which enters receiving waters. Problems
caused by this waste from cattle, poultry, and hog production are
widespread, but nre most significant in the Car midwest. "unoff
from these operations is ten to one hundred times more concentrated
than raw domestic wastes. Dissolved oxygen deficits caused by
feedlot runoff pollution were directly implicated in 87 reported
incidents of fish kills in the Nation in 1969, with a total kill of
nearly 1.5 million fish. Fecal bacterial counts as high as 40
81
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million per 100 milliliter of sample have been reported following
"slug" runoff from cattle feedlots. This contrast with a typical
acceptable count of 4,000 per 100 milliliter for certain body-
contact recreational uses.
Environmental contamination from pesticide-herbicide runoff or
accidental contamination is an increasingly serious problem.
Application practices, the persistence of these pesticides, and the
numerous natural pathways for biological reconcentration have con-
taminated significant quantities of marketable fish. These, in turn,
may produce long-term effects on other consumers, including humans.
Large areas of the country have been closed to commercial and sport
fishing. Thousands of acres of shellfishing areas have been affected
by pesticide runoff.
The use of pesticides is growing at a tremendous rate. The total
value of all pesticides produced in this country was $440 million in
1964, and $12 billion in 1969. Herbicide sales rose 271 percent
between 1963 and 1969. It is estimated that Insecticides will almost
double in use by 1975, and herbicide use will increase to more than
double that of insecticides during the same period. In 1964, 470
million pounds of insecticides were used on 83 million acres of
land and 97 million acres of agricultural land were treated with
herbicidal chemicals.
Agricultural lands also contribute about half of the four billion
tons of sediment that reach water courses each year; each ton carries
with it one pound of phosphorus. This amount of phosphorus would be
sufficient to stimulate algal production in 10 acre-feet of water.
Pollution from forestry and logging operations principally affects
the Northwest and Southeast regions. Silt, solids and organic
leachates are the principal contaminants from forestry and logging
operations. Studies have shown that sediment loads increase from
7 to 70,000 parts per million following clear-cut logging operations.
Five to ten percent of silt pollution comes from forests and
associated rangelands.
Control and abatement of agricultural pollution will be achieved
through improved and new technology and management practices for
control of pollutants. This knowledge will be transferred to the
governmental and private parties who are in position to put the
controls into operations and will help establish and enforce com-
pliance with water quality standards.
82
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Inventories of the sources and the character of the effects of agri-
cultural wastes will provide a basis for initiating enforcement
actions and developing basin control technology research. Through
research efforts, water quality criteria for pesticides and manuals
prescribing control measures for feedlot and salinity control will
be developed. Water qualitv standards will be established for pesti-
cides and updated for the other aspects of agricultural pollution.
4.3.2 ANTICIPATED ACCOMPLISHMENTS OF PROPOSED PROGRAM
Fiscal Year 1971
-Complete feedlot and salinity problem inventories.
Fiscal Year 1972
-Identify hazardous pollutants.
Fiscal Year 1973 - 1976
-Complete reports on pesticides application and criteria.
-Control pesticide runoff from Federal activities.
-Institute training programs for persons in positions
to control pollution from agricultural sources.
-Develop criteria for pesticides and water quality
standards updated for all types of agricultural pollution.
-Enact legislation for complete control of pesticides.
-Develop State programs incorporating controls for
salinity, sediment, nutrient, and persistent pesticides.
-Achieve full compliance with standards of large
feeding operators.
-Achieve full compliance with pesticide regulations.
-Achieve significant compliance for agricultural runoff
and forestry and logging.
83
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4.3.3 SUMMARY OF PROGRAMS
Major milestones and Interrelationships for the optimum and proposed
programs are shown in Figures 13 and 14 respectively.
Differences in the levels of accomplishments for the two programs
are shown in Table 11.
84
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AGRICULTURAL WASTES-ANIMAL FEEDLOTS
ACTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
Enforcement
Compliance
anpower & Training
Training
'echnical Support
Reduce effort 10%.
)elayed two years.
Current situation
problems
Abatement and control
practices
Technical assistance
Inventory
gsearch^ Development
and Demonstration
Biological treatment
Technological manuals
Waste conversion,
reuse and by-product
recovery
Tertiary treatment
Facilities Design ani
Management
State Program 3rants
Initiate actions to ensure compliance
with water quality standards.
determine training needs and develop and
institute training programs for feedlot
«wners/operators, and other Key people
.n selected areas of government and
industry
Conduct indepth field studies in at least
three dissimilar geographical areas to
develop a quantitative knowledge of pol-
lution problem and make recommendations
'or solution.
)evelop criteria for acceptable abatement
and control practices for feedlots.
Stimulate use of applicable waste collec-
tion mechanisms and proper housekeeping
ractices. Encourage through technical
.eadership and bulletins the establish-
ment of State programs for pollution
control which will emphasize resource
conservation.
Complete, and continue to update, inven-
tory of confined feeding installations
with locations in regard to watercourses,
number of animals confined, soil type and
condition, and facility, if any, for
storage and disposal of animal waste.
Develop and demonstrate biological treat- ;o change
sent methods for runoff from feedlots;
compile a manual of abatement practices
late FY 1973-
Delayed, one year.
Delayed one year.
Delayed one year.
Delayed one year.
Feedlot Control
Develop technological manuals for bio-
.ogical systems and operations management
In FY 1973; develop similar manuals for
advanced systems for feedlot runoff con-
trol in FY 1975-
)evelop and demonstrate methods of re-
cycling, reuse and by-product recovery of
animal feedlot wastes.
Develop and demonstrate tertiary treat-
ment systems for use in confined animal
feedlots to substantially and effectively
remove nutrients and color.
Investigate, develop and demonstrate
physical design and facilities management
of feedlots to alleviate runoff.
Assure that goals in feedlot control are
reflected in State program plans.
No change
dnor, probably 30% or
ess, effect on full
ompliance
Critical area for deter-
mining R&D, training and
enforcement needs. Also
will delay feedlot pollu-
tion control one year.
'ill delay control of
'eedlot pollution one year
fhis is critical item for
.eveloping feedlot control
ind will delay control one
ear.
None
None
3y-product recovery methods
lelayed two years. Incin-
eration methods one year.
Delayed two years.
No change
Normal grants administra-
tion will accomplish these
tasks without additional
sources. _____
One to two year's
delay in control
measures.
Reduce input to tech-
nology manuals in
FY 1975-
85
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TABLE II (continued)
AGRICULTURAL WASTES-ANIMAL FEEDLOTS
ACTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Regulations and
Legislation
Federal Activities
Coordination
Affects of Federal
Operations
Provide Information
Non-Federal Sector
Feedlot Registration
Regulation
Encourage States to develop State feed-
lot registration regulations or
legislation.
Determine the degree to which other
agencies' programs affect feedlot opera-
tions and the extent to which these
programs are or can be used to control
pollution.
Provide agencies with pollution control
information; consult on new technology,
and encourage participation in pollution
control training.
This task must be performed to accomplish
control.
Normal grants administra-
tion will accomplish thes*
tasKs without additional
resources.
Will not be done except
as collateral information
obtained in coordinating
with other agencies.
Delayed one year.
No Federal funding
involved.
Bhese tasks will be accom-
plished under FAC tasks
identified elsewhere.
Minor
Minor
86
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Table IT (Continued)
AGRICULTURAL WASTES - IRRIGATION AND RURAL, RUNOFF
ACTIVITIES AND IMPACT
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Enforcement
Compliance
Manpower and Training
Irrigation Return
Flow
Farm Operators
Rural Runoff
Technical Support
Salinity Problem
Inventory
Characterize Magni-
tude of Problems
Release of Pesticide
Pesticide Registra-
tion
Technical Assistance
Monitor Pesticides
Water Quality Standard
Standards
Research, Development,
and Demonstration
Salinity
Initiate actions to ensure compliance
with water quality standards.
Institute a program for training field
representatives in inspection and testing
techniques applicable to return flow
irrigation effluent.
Develop and institute eight regional
programs for training farm operators in
advanced environment-oriented farming
methods. (Cooperation with USDA/OE)
Institute a specialized training program
and, in cooperation with the Office of
Public Information, develop an education
al program for control of chemical
pollutants originating in runoff from
rural lands.
Develop an inventory of and evaluate
salinity problem from irrigation return
flows; report by June 1972.
Conduct technical studies to characteriz
magnitude of salinity, nutrient and
sediment problems on 20 watersheds;
selected, in part, as a result of the
inventory; report in FY 197^.
Develop and submit to Congress a report
on methods to control the release of
pesticides into the environment in order
to insure effective implementation of
pesticide water quality criteria; report
in FY 1972. Section 4.3
Participate in review of pesticide regis
tration and in the coordination and
review of Federal pesticide programs.
Respond to acute pesticide pollution
problems.
Implement a monitoring program for con-
tinuing national assessment of pesticide
levels associated with streams, lakes,
estuaries and coastal waters.
Seek revision of all State implementation
plans to include nonpoint sources.
Demonstrate measures and practices to
prevent or control salinity pollution.
Effort reduced
No Change
No Change
No Change
Delayed one year.
Delayed one year.
Effort reduced to one-
third in FY 1971.
Delayed one year.
Delayed one year.
Delayed one year.
Delayed one year.
Minor, probably 3 percent
or less, effect on compli-
ance.
None
Salinity control program
delayed one year.
Salinity control program
delayed one year.
Implementation of pesticid
water quality criteria and
report to the Congress due
in FY 1972 will be delayed
into FY 1973-
Objective of complete
control of pesticide pollu
tion in FY 1973 will not
be achieved.
As above and severe envi-
ronmental damage occurs
as result of acute prob-
lems .
Objective of complete con-
trol of pesticide pollu-
tion in FY 1973 will not
be achieved.
Control of salinity delay-
ed one year.
87
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Table 11 (Continued)
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
Nutrients
Sediment
Pesticides
Federal Activities
Coordination
Resource Development
Agricultural Permits
Demonstrate methods to treat, control or
prevent nutrient pollution. A limited
number of control measures will be
available by FY 1973 and predictive
methodology in rural runoff will be
available in FY 1975-
Develop and demonstrate sediment preven-
tion and control measures.
Develop and demonstrate measures to pre-
vent or control pesticides pollution.
Sustain Federal program direction -with
other agencies such as the Bureau of
Reclamation, the Bureau of Land Manage-
ment and the Department of Agriculture
to examine the environmental consequence
of their programs and to develop
approaches to reduce sediment, pesticide,
and other toxic materials, and nutrient
loadings.
Undertake detailed analysis of existing
Bureau of Reclamation, Department of
Agriculture, TVA, Corps of Engineers
regulations to insure that resource
development projects are consistent with
water quality standards.
Make full utilization of Section 21 (b)
to assure inclusion of salinity control
measures in all agricultural-related
permits.
Effort reduced to 50
percent in FY 1971.
Delayed two years.
Delayed two years.
No great impact on overall
program.
Full compliance with
standards will not be
achieved in FY 1976.
Objective of complete con-
trol of pesticide pollu-
tion in FY 1973 will toe
reduced and overall con-
trol delayed two years.
Delayed two years.
Achieving water quality
standards through Federal
operations will be
delayed two years.
88
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TABLE 11 (continued)
AGRICULTURAL WASTES - FORESTRY AND LOGGING
ACTIVITIES AMD IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Enforcement
Compliance
Manpower & Training
Training
Technical Support
Monitoring System
Assistance to States
Pollutions! effects
of logs
Hater Quality
Standards
Establish standards
Basin Planning
Planning
Research, Development
and Demonstration
Sediment, organic and
nutrient runoff
Federal Activities
Coordination
Program for public
Initiate actions to ensure compliance
with water quality standards.
Institute training program in coopera-
tion with plans to be developed by
Federal Activities Coordination in
association with U.S. Forest Service
and Bureau of Land Management.
Expand existing monitoring system in
appropriate areas to evaluate effects
of forestry practices on water quality.
Provide technical assistance to States
in developing and implementing remedial
and control programs.
Characterize the pollutional effects
from water storage and handling prac-
tices of logs on tidelands, marine,
estuarine and fresh waters.
Key tasks of establishing instream and
runoff standards for sediment, nutrients
salinity, pesticides, and toxic mate-
rials on forest lands are included in
Section 2.0, Water Quality Standards.
Key task of integrating planning for
pollution abatement of rural and
forested areas is included in Section
3.0, River Basin Planning.
Develop and demonstrate technology to
prevent and control sediment, organic
litter and nutrient runoff associated
with forestry and logging operations.
Review forest practices program with
national Park Service and U.S. Forest
Service, Bureau of Land Management and
Bureau of Reclamation to develop, im-
plement and sustain corrective program
on public lands.
Effort reduced loft
Delayed two years.
Minor
Minor
No change
No change
Delayed one year.
None
None
Minor
To be carried out by
Basin Plans
Subelements delayed one
to two years.
Delayed one year.
None
Will delay Program for
Public Lands one to two
years and reduce F & L
1976 compliance by ^0
percent.
Will delay for one year
changes in forestry prac-
tices on Federal lands
which would have signi-
ficant impact on water
quality.
89
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4.4 OTHER URBAN WASTES
4.4.1 SUMMARY OF PROBLEM AND STRATEGY FOR ITS SOLUTION
In addition to sewered municipal wastes, other urban wastes—
including combined sewer discharges, other urban runoff, and
unsewered municipal wastes—are a serious source of water pollution
which must be attacked in the next five years in order to achieve
water quality standards, even in part, by 1976. In large
metropolitan regions where water-based recreational demand is
expecially high and combined sewer systems are the rule instead
of the exception, control of "other urban wastes" will be the
keystone in meeting water quality standards and preventing closure
of beaches during wet weather flows. Urban runoff wastes have
many of the same adverse effects on water quality and water use as
municipal sewage: they contain high concentrations of bacteria,
solids, organics, and inorganics and result in attendant degradation
of water quality. Separate and distinct from urban runoff, unsewered
municipal wastes—primarily septic tanks—pollute surface and ground
water where uncontrolled urban expansion has occurred. Recreational
lakes (for example, Lake Tahoe) and drinking water supplies have
been damaged by bacteria and nutrients from these sources.
The major objectives of the program to solve the other urban waste
problem are: (1) to control 50 percent of combined storm/sanitation
sewer overflows by 1976 by controlling the problems in 25 major
cities; and (2) to complete, by 1974, the development of an effective
onsite disposal system for use in individual homes and small
communities.
To accomplish these goals, three major program elements of FWQA must
complete a number of interrelated activities. (1) Basin planning
must identify the most cost-effective investments to be made in
other urban controls. (2) Research must provide an array of
technical alternatives for controlling other urban wastes because
conventional measures are not directly applicable to control these
waste sources. (3) A construction assistance program may be
required to provide local government with about 50 percent of the
financing cost of control measures.
Because of their variable nature and variable quality, other urban
wastes cannot be treated by conventional waste treatment measures.
FWQA research has already devised some new techniques for control
of these wastes. The need remains, however, to define more
accurately the full scale costs and applications of each, to
95
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determine potentials for cost reduction, and to effect a technology
transfer to local communities. This effort must be accelerated
over the next three years so that construction program can benefit
from cost-effective technology.
The key element in meeting program goals is the initiation of a
construction grants program, starting in FY 1973, to assist local
communities in building control devices for urban runoff wastes.
Basin planning plays a key role in identifying the most serious
problems relative to urban runoff wastes and providing plans for
their solution. As proposed, combined sewer overflows and storm
water discharges would be Included in basin planning milestones as
listed in Section 3 of this document.
4.4.2 ANTICIPATED ACHIEVEMENTS FOR PROPOSED PROGRAM
Fiscal Year 1972
- Develop legislative program for providing financial
assistance to remedial works.
Fiscal Year 1973 - 1976
- Have demonstrated techniques and methods for controlling
urban runoff.
- Achieve 100 percent control of these types of wastes
from all Federal installations.
- Achieve 50 percent control of urban runoff.
4.4.3. SUMMARY OF PROGRAMS
Differences in the levels of accomplishment for the optimum and
proposed programs are shown in Table 12.
Major milestones and interrelationships for the two programs are
the same, as shown in Figure 15.
96
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TABLE 1 ?
OTHER URBAB WASTE
ACTIVITIES AMD -.MPACT
ACTIVITY
Research ^Development
& Demonstration
Storage Technology
Physical Treatment
Planning i- engineering
Methodology
Biological Treatment
In System Control
Phy s i c al - Chemi c al
Treatment
Construction Material
i Practices
Storm Vater Application
Nonsewered Urban
Runoff Application
Onsite Disposal
Systems
Transfer Technology
OPTIMUM PROGRAM
Determine storage configuration which
can be applied to the problem, to
demonstrate the use and evaluate the
control effectiveness and associated
costs.
Upgrade the flow-rate capability of
physical treatment methods considered
thus permitting their use in treating
storm-generated flows.
Transfer already developed modeling
technology and refine the model to
apply to entire metropolitan areas and
to define and improve its sensitivity
to data inputs. Demonstrate the model
as a tool for developing metropolitan
control systems. Improve the model as
a design and decisionmaking tool.
A-iopt conventional biological methods
to permit their use in a new functional
manner.
Modify the existing systems to maximize
the storage capacity to reduce the
frequency of overflows.
Improve the physi cal treatment methods
by adding chemical processes to increase
treatment rate capability.
Improve performance capabilities ana
reduce facility, and operation and
maintenance costs. Heduce labor
costs through materials improvements
and better construction methods.
Adopt control and treatment methods
developed and demonstrated for combined
sever overflow* problems to storm water
discharges.
Adopt control and treatment methods
developed and demonstrated for combined
sewer overflow problems to nonsewered
urban runoff.
Complete development of effective onsite
disposal systems for individual homes
and snail communities.
Transfer disposal technology through
information to health department
sanitarians and local authorities so
that local ordinances can require such
devices be installed.
_ — . —
PROPOSED PROGRAM
No change
No change
Task deferred for one
year with loss of
$ .566 million
No change
Task cut 1/3 in FY 1971
Deferred one year. Full
funding FY 1972-1976
Ho change
ISo change
No change
Level of effort in
FY 1971 reduced by 1.7
No change
IMPACT
None
None
Modeling capability will
not be available until
construction program is
underway. Construction
proceeding will therefore
be less cost-effective
None
Reduction will slide
completion of task about
6 months into the future
Little impact is expected
"by this cutback. The
slippage will result in
more experience with
conventional physical
chemical treatment
None
None
None
4ore load must be picked
up by industry. $1/2
million is adequate for
demonstration of priority
systems in FY 1971
None
97
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OTHER URBAN WASTE
ACTIVITIES AND IMPACT
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
Construction Grants
Urban Runoff Grants
Administration of
Srants
Basin Planning
Urban Runoff Planning
Obtain the optimum goal of 50% control
of combined sewer overflows and storm
water discharges in about 25 ma^or
cities which will require a Federal
investment of $6. £5 billion to complete
$12.5 billion of total construction.
The program will start in FY >"^3 at
$500 million ($250 million Federal and
$250 million State and local) and be
phased upward in later years.
Administer the urban runofr grants
through the construction grants program.
Sunnnary manpower and administrative
costs are included in the s'orraary
table.
None
Identify the priority areas into vhich
grant assistance for combined sewer
overflows should be channeled. Provide
plans for such control.
change
None
98
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4.5 OIL AND HAZARDOUS MATERIALS
SPILLS
4.5.1 SUMMARY OF PROBLEM AREA AND STRATEGY FOR ITS SOLUTION
Presently, an estimated 10,000 spills of oil and hazardous materials
occur annually in the navigable waters of the Nation. Oil spills
are expected to triple over the next 30 years as a result of
increased transport, storage, and transfer. The production of
hazardous materials is expected to increase by 73 percent in the next
ten years. "Spills" are distinguished as noncontinuous discharges
of dumping which usually occur as a result of accidents, malfunctions
of equipment, or human error. They also include discharges of oily
ballast water, discharges from tank cleaning operations, convenience
dumping of hazardous materials into sewers or the environment, and
waste oil from crankcases and industrial uses.
Damages caused by oil pollution are both significant and diverse.
Such pollution can destroy or limit marine life, ruin wildlife
habitat, kill birds, limit or destroy the recreational value of
beach areas, contaminate water supplies and create fire hazards.
Damages caused by other hazardous substances can be just as signifi-
cant and diverse as those caused by oil pollution. The sheer volume
of oil transported or used, however, makes oil the largest single
source of pollution of this type.
Methods to prevent spills are available. There is a substantial
body of conventional, "good-common-sense" preventive technology and
operating practices currently available which are not being fully
used. The technology for containing, removing, disposing of, and
cleaning up the damage from spills must be classed as primitive and
requires a considerable research effort.
The Water Quality Improvement Act of 1970 provides a strong and
comprehensive statutorv authority under which to pursue Federal
action to combat and prevent oil spills. The Act provides for (1)
definition of illegal oil discharges; (2) regulations, penalties,
liabilities, and enforcement actions to contain and clean up oil
101
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by the responsible party, (3) Federal action and a revolving fund
to combat oil spills where the responsible party fails to act; and
most importantly, (4) Federal regulations to secure the prevention
of oil spills. Section 12 of the Act establishes authority to
designate as hazardous substances those materials which when dis-
charged may impair water quality. Additional legislation will be
needed to establish liabilities and penalties and other appropriate
measures to enable effective control of hazardous materials pollution.
Coordination with the Department of Transportation and other agencies
for the participation in preparing regulations and reports and in
planning will be necessary. Pursuant to the Act and the President's
delegation of authority pertaining thereto, the Federal program for
dealing with oil and hazardous materials spills is jointly carried
out by the Department of Interior (F.JQA) , the Department of Trans-
portation (Coast Guard), the Council on Environmental Quality, and
the Federal Maritime Administration. (Other Federal agencies are
involved through the National Contingency Plan.) The principal
program elements are jointly conducted by FWQA and the Coast Guard
and the lead responsibilities are allocated as follows:
(1) For establishing and enforcing regulations on oil spills and
on Federal contingency planning response actions:
FWQA - Inland waters except the Great Lakes.
Coast Guard - Coastal and Great Lakes waters and harbors.
(2) For establishing and enforcing regulations on prevention of
oil spills:
FWQA - Nontransportation-related onshore and offshore
facilities.
Coast Guard - Vessels and transportation-related onshore
and offshore facilities.
FWQA's program is coordinated with that of the Coast Guard and it
is expected that the Coast Guard program will be integrated with
and parallel to FWQA objectives, time-phased goals and program
priorities. Subtasks are:
(1) To coordinate with Department of Transportation on President's
report on hazardous materials - Fiscal Year 1971.
(2) To coordinate with Department of Transportation Financial
Liability report due January 1, 1971.
102
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(3) To coordinate regulations for oil spill prevention and removal.
(4) To coordinate regulations for hazardous substances on
designation and removal.
(5) To coordinate with Department of Transportation and other
agencies on spill response programs.
Effective spill prevention and response programs are almost nonexis-
tent at the State and local levels. Such programs to complement
the Federal effort will be essential for an effective national effort.
At least five States have begun to move ahead with oil spill
programs and others are expected to follow suit as the Federal
Government begins to lead the way.
Regulations for regional and local contingency plans will be
promulgated and these together with Federal assistance will provide
the guidelines to promote the development of State and local programs.
It is expected that within five years, the State and local programs
will begin to relieve Federal program effort in preventing spills.
An important element of the Water Quality Improvement Act of 1970
is the imposition of financial responsibility and liability on the
parties responsible for oil spills. No such incentives have existed
before and their emergence should play a significant role in
encouraging the industries to cooperate in reducing spills.
The program strategy for controlling oil and hazardous materials
spills, in order to achieve compliance with water quality standards
by 1976, has the following objectives:
(1) To establish and enforce effective regulations to control and
clean up oil and hazardous materials spills by responsible
parties.
(2) To provide a fully adequate Federal response to carry out the
cleanup of spills where the responsible party fails to act.
(3) To implement a comprehensive prevention program that will
eliminate, by the end of FY 1976, all preventable spills and
attenuate those spills caused by acts-of-God and unavoidable
accidents.
(4) To promote and assist State and local agencies in developing
respective contingency plans, response capabilities and preven-
tion programs so that they might eventually assume major
responsibility in controlling oil and hazardous materials
pollution.
103
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(5) To provide a research and development program and advanced
technology to carry out the above tasks.
To accomplish this strategy, the following tasks by program element
are assigned:
Technical Support is responsible for the core elements. These
are: to establish and revise regulations; to organize and maintain
response teams and their capabilities; to develop and conduct
a preventive program; and to coordinate with the Department of
Transportation and other agencies in developing and implementing
the National Contingency Plan (as a participant under the Council
of Environmental Quality). Promotion of State programs and assis-
tance to the States and local agencies in developing respective
contingency plans, response capabilities, and prevention programs
will also be undertaken.
Research, Development and Demonstration has the important task of
advancing the present primitive technology for dealing with oil and
hazardous materials spills and waste oil discharges. Data on fate
and effects of oil and hazardous materials and on the agents used
to cope with spill incidents is needed to revise the regulations.
Spill response techniques are needed for countermeasures to mitigate
damage caused by the spills. Disposal methods of material removal
from a spill are important to avoid secondary pollution. Techniques
must be developed to prevent spillage.
Enforcement vill prepare evidence, assess penalities, and pursue
legal actions against noncompliance with regulations and violations
of the Refuse Act of 1899 and water quality standards.
Federal Activities coordination will ensure that Federal installations
are keeping pace with the private sector in abating pollution.
Manpower and Training will develop courses to train Federal and
State personnel for spill response and prevention.
Training programs will be developed for Federal State personnel
for spill response, prevention methods, techniques and inspection
programs.
4.5.2 ANTICIPATED ACCOMPLISHMENTS FOR THE PROPOSED PROGRAM
Fiscal Year 1971
-Develop regulations for defining harmful quantities of
oil; develop prevention and removal methods for oil;
designate materials that are hazardous and describe
104
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removal methods; and establish local-regional contingency
response plans.
-Revise Regional Contingencv Plans.
-Coordinate with U.S. Coast Guard on regulations and
reports on hazardous materials and liability.
-Provide technological data on fate and effect of
dispersants, oil, and hazardous materials.
-Develop methods to identify source of oil slicks and
standard test for dispersants.
-Complete cost study,
Fiscal Year 1972
-Conduct operative enforcement program.
-Revise regulations, designate hazardous materials, and
revise contingency plans.
-Complete hazardous materials reliability study and
develop waste oil reception and reuse systems.
-Enact legislation for hazardous materials.
-Have an operational Federal installation prevention
program.
-Train Federal personnel in prevention and start courses
for State personnel.
-Develop State contingency plans for key river basin plans.
-Hold national conference for hazardous materials.
-Coordinate revised regulations and coordinate with the
Department of Transportation on civil and criminal
penalties for discharge of oil and hazardous materials.
-Determine the fate and effect of oil and hazardous
materials on key fish and wildlife species and movement
in water.
105
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-Develop new techniques to control arid remove spilled
hazardous materials, to identify and monitor spilled
materials, and methods to detect oil concentration
in discharges.
-Develop methods for converting recovered oil to useful
products, develop separator for oily wastes, and methods
to incinerate removed material.
-Complete petroleum industry reliability study and study
of process changes to prevent spillage.
-Develop spill response system for all high-risk Federal
installations.
-Develop training program for spill response for Federal
personnnel.
Fiscal Year 1973-1976
-Continue revision of regulation and contingency plans.
-Determine State and local spill response capabilities
(FY 1973).
-Develop State model regulations.
-Develop operational prevention program (FY 1973) .
-Hold national oil conference (FY 1973).
-Continue coordination.
-Determine fate and effect of sunken oil and continued
assessment of impact on environment of oil and hazardous
materials.
-Develop operational oil spill response system, oil
tagging system, and evaluate countermeasures.
-Develop technology for burial and landfill methods for
disposal and reuse.
106
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4.5.3 SUMMARY OF PROGRAMS
Major milestones and interrelationships for the optimum and
proposed programs are shown in Figures 16 and 17 respectively.
Differences in the levels of accomplishment for the two programs
are shown in Table 13.
107
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OIL WQ HA2A5B3US
yJHERIAiS SPILLS
ACTIVITY
Technical Support
Oil and Hazardous
Material Regulations
Spill Response
Prevention
Coordination
OPTIMUM PROGRAM
Key Tasks: A program should be im-
plemented to regulate, prevent, and
respond to spills.
Regulations required under F.L.. 91-22^,
Sections 11 and 12 should be developed
during FY" 1^71 to: define- hartr.ful
quantities cf oil. describe local -
regional c-ontinger.cv response t-'lar-:? ,
describe prevention and removal methods
hazardous and rer.oval methods.
T. jT 1972, these regulations will be
revised as needed and the designation
cf h£zar3ous materials will continue.
A program should "be implemented to
promote adequate cleanup actions by
dischargers cf oil snd hazardous mat-
erials and to promote State, local,
and industry capability to rescon-3 to
spills.
This task ?*>ust. revise xhe :rational and
Segicnal Contingency Plans by the end
of Fi 1971, develop State plans and.
plans on key river basins by the end
cf ?Y 1?72, ins-ore effective State and
local response capabilities to cope
with chronic and major spills toy the
end of 1973, and iKple^er.t the results
of research projects as they become
available in FY 1972 and 19?3.
A prevention prcgrar. nust "be provided
that vill be directed toward reducing
The occurrence and intact cf spills
s. fiicri level of scill rssTicnss cs^ab-
ilities.
"^ °^ d s~j.Tev^ sji"* """"a"*" "* ^ T ^ •£« -' ~ ve^t c^4 es
rsusr "ce conducted to identify design
specifications, e a ui parent characteristics,
preventative measures ani operational
procedures to prevent spills by the end
of FY 1972. Facilities will be in-
spected tc assure- 0 oisplian.ee with pre-
scribed net hods and procedures from
Fi 1972 and on. Criteria for certifi-
cation of facilities during Fi' 1972,
public education programs srtd the States
Eodel regulations starting in ?Y 1973
vill be developed.
P.L. ?l-22^ and E.O. 115^3 have created
new nuiltiagency p re grans relative to
regulation preparation, report prepara-
tion, planning and spill response.
Tne critical program that nust be ac-
complished is the coordination vith DCT
or.: the President's report- on hazardous
inaterials due May 1970; the Financial
Liability report, for January 1971;
regulations for designation and removal
of hazardous materials during FY 1971.
PROPOSED PROGRAM
These tasks would be ac-
complished as scheduled,
but data requirements
would be obtained by
contract rather than
FWQA personnel. There
en matching up by rev-
ri;e proposed program will
operate at about 60^ of
t he CD* inuni . Work on
State and local plans
and. plans for Key basins
vill be reduced. Response
:r. FY 1971 to snail spills
C"L inland vaters w^XLd.
be limited.
The proposed program will
shift the optimum one
year. During FY 1971,
UT3 on. suill itici dents to
determine the cause and
discharge .
For FY 1971 the proposed
program is 10^ of the
cptiisus:.
IMPACT
This task is specified
by law and is essential
tc accomplish the ob-
jectives. Cooperation
sjid int5ut frops ot her
agencies must "be on
legislation is required
prevention regulations.
Proposed reductions
will reduce :.he quality
cf the regulations 20^»
Operating at less than
optimum will prohibit
meaningful response to the
small chronic spills
whicii Kill continue to
have adverse effects on
the aquatic environment.
There wciild be a re-iuctioii.
of 10-15$ in meeting the
water quality goal.
Reduction in optimum pro-
gram would have signifi-
cant averse effects on
enf orce^iert tasks, Lee—
islatior. is required for
rrevent "> en program. A*"1—
complis'njp.ent of the op-
tinam task vould result
in an So% reduction of
spill ir.cidents. The
proposed shift will re-
duce this from 80$ to 65$
and more importantly, for
FY 1971 there would be one
more year of discharge of
toxic materials into the
aquatic environment.
There must be an aggressive
coordinated effort on
studies, reports, regula-
tion and response with 307
tc meet such milestor.es as
the report to the President
on hazardous materials
liabilities which is due
November 1970, and the
meeting of water quality-
goals in both inland and
ooastal zones. The
108
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TABLE
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
reduction proposed will
reGUI: in a leac a^rres-
sivo effort in coordina-
tion, sr. 1 will increase
the risk of errors an'3
ti&e for review.
Key 'laskts; A pro=rra.r. should "be provl-ica
to improve the current primitive tech-
nology "Cor aealir.L- .''ith oil and hazard-
ous materials spills and vaste oil dis-
charges.
ar.j"i~y stiidi es, a-id
°.i a field test
le-i to provide for
cerr-i:i£: (l) tr.e
2f spillage and the
-ope with the spill-
icial >.Ta,ter uses; ana
and charges in physical
perties cf the spilie.1
onse r^ envircnnientai
te cf tne spill.
Dsoer^iine the environmental effects of
oil and hasardous materials on key fish
a-id vildlife species in FY ;.971-1972,
continue effects studies on
operate at 60^ of
opti;::,c:; in FY 1^
nstinr any efforts
beriii research on
fate and movement
or: ice and reducir
efforts in the oti
areas.
1 elir.1-
f oil
the
cieanup techniques particularly' dis-
psrsants, during ~i 19T1: the fate ar.d
ECA-etient of oil and hazardous materials
in water by FY 1973 and on ice during
FY 1971, and the fate anil effects cf
sunKen oil ty Fi' 197^•
Te=Vjiiaue£ shcula be aevelopei to lessen
damage caused by spilled oil and
"na-ardoiis ca^erial along vrith ccun*-er-
i^ieasures ~G protect public health and
ta
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TABLE 13 (continued)
OIL AMD HAZARDOUS
MATERIALS SPILLS
ACTIVITY
Prevention devices
and techniques
Enforcement
Federal Activities
Coordination
OPTIMUM PROGRAM
A state-of-the-art study will be accom-
plished in FY 1971. Methods of ultimate
disposal for spilled hazardous materials
will be developed in FY 1971 and demon-
strated at field sites by FY 1973.
Methods will be developed for the con-
version of recovered oil to useful
products during FY 1972 and for the
conversion cf hazardous materials in
FY 1973.
An improved separazor will be developed
to removed oily wastes from waste water
during FY 1972.
In addition, techniques will "be develop-
ed for the incineration of removed
hazardous materials in FY 1972, for
burial and landfill by FY 1973 and for
"biostabilization and encapsulation
before FY 197^.
Devices and techniques tc prevent spill-
age of oil and hazardous materials
should be developed.
A study of industrial processes for
determining changes for preventing
spillage should be completed in FY 1^7£.
A spill proof oil carriage or transport
systems in FY I^"<. should be developed.
Reliability studies should be 'under-
taker, for the petroleum industry in
FY 1971 and for hazardous materials in
FY 1973. These studies should be updated
and revised in FY 19?U. A waste oil
reception system and waste oil reuse
system should be developed by FY 1973.
Key Tasks: The preparation of evidence ,
the assessment of penalties, and the
pursuit of legal actions against non-
compliance with regulations developed
in accordance with PL 91-22U, violations
cf the Befuse Act of 1899, and water
Quality standards should be accomplished.
Key Tasks; An effective spill pre-
vention, control and response program
should be developed and carried out to
eliminate or reduce spill incidents in
Federal installations under provisions
of EC 11507.
A fully operational spill response
system for all high risk Federal in-
stallations should be developed by
FY 1972 and a prevention and control
program should be operational for all
Federal installations by FY 1973.
PROPOSED PROGRAM
Tne proposed program is
6'?% of the optimum for
FY 1971 resulting in a
reduced study on the
reliability cf the
petroleum industry.
The proposed program
reduces optimum effort
80%.
This task is eliminated
as activities proposed
will be accomplished in
conjunction with other
Federal activities co-
ordination tasks.
IMPACT
prevent proper responses.
The reduced effort will
lessen the quality of the
study in FY 1971 by 2%
but will provide enough
inf ormati on to carry out
the program at a reduced
quality of 10$.
This task will provide
the technology for re-
ducing the frequency of
spill incidents. This
task is carried out in
cooperation with DOT,
DOD, HEW, and Commerce
as part cf the National
oil pollution control
effort. The reduced
effort will shift com-
pletion schedules.
Enforcement of regulations
will enhance the preven-
tion and response tasks.
This reduction will delay
an aggressive effort to
enforce regulations and
will have an undetermined
effect on the overall
effort of prevention.
Federal facilities must
at least keep pace with
the private sector in
abating pollution if the
water quality goals are
to be met. The elimina-
tion of this task will
not lessen this effort
but shift it to FAC rather
than having it as a sep-
arate task.
110
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OPTIMUM PROGRAM
PROPOSED PROGRAM
Manpower and Training
Key Tasks: A program should be devel-
oped to train Federal and State per-
sonnel in activities associated with
spill response, prevention methods,
techniques and inspection programs,
Training for spill response should be
accomplished by FV 197? and for spill
prevention by FY 1973. State personnel
should be trained in response and pre-
vention by FY 197^.
Key Tasks: A study ~o find methods for
accelerating construction of facilities
reduce spill incidents and determine
liability limits for small on-shore
oil storage facili'ir s v?ill be com-
pleted in FY 1971.
Training will assure that
properly instructed per-
sonnel respond to spill
incidents. It will alsr>
provide field personnel
with basic essential
elements 1'or spill re-
sponse, control, and
prevention.
Study findings will pro-
vide input to the pre-
vention task.
Ill
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4.6 WASTES FROM MINING AND WELLS
4.6.1 SUMMARY OF PROBLEM AND STRATEGY FOR ITS SOLUTION
Annually some 500 billion gallons of mine drainage containing
millions of tons of acids, acid salts, or alkali salts degrade
over 10,000 miles of surface streams and more than 15,000 acres of
impounded waters. Mine drainage pollution results in unsightly
deposits of residues on beds and banks of streams; and, in many
cases, toxic components of the drainage destroy all fish and aquatic
plants in the stream. Tailings piles from all types of mining
degrade the landscape and through surface drainage add chemicals and
silt to streams and lakes. Mineral preparation operations produce
silt, slimes and chemically-degraded water in addition to their
intended products. Oil extraction operations yield drilling muds
and salt brines as well as oil. The Alaskan North Slope oil
development presents an unexpectedlv difficult problem due to the
fragility of the tundra environment. Pollutants from mining and
oil development most usually occur in rural and wilderness areas
which would otherwise have great potential for recreational
developments. Thus a significant decrease in land and resource
values may be associated with this type of pollution. Of greater
significance is the potential for pollution of the ground water.
Since about three-fourths of the mine drainage problem is caused
by nonoperating mines, for which responsibility cannot easily be
determined (if at all) the most expedient program for abatement is
projected to be a public works program. Because of the limited
dependable technology available, it is considered beyond reason to
initiate immediately a massive funding program, since most con-
struction would be of an exploratory nature, with an estimated
30 percent effectiveness resulting from an attempted 100 percent
control program.
With a few specific exceptions, the technology for controlling
wastes from mineral preparation operations is now available.
Technological methods of control have been advanced in water scarce
areas of the nation where the preparation plant s continued
117
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existence has depended on water conservation. Additionally,
progress has been made in areas and States where local demand has
required consideration of waste water control.
Nontechnological control methods are of significant importance in
this problem component. The establishment of appropriate State
requirements and strict enforcement of these requirements should
result in substantial compliance with water quality standards
over a very brief interval.
There are presently two methods to control the problem of brine
pollution from oil production. Past experience has shown that
larger operations can effectively and less expensively reinject
the brine back into the oil-bearing strata; this disposes of the
brine and also maintains the pressure in the strata which allows
the field to produce more oil, thus extending its useful life.
An alternative approach is to treat all of the wastes using
existing demineralization technology, thus recovering potable water
and a more concentrated brine or solid waste. Enforcement is the
major task in abatement of this type of pollution.
Even proceeding with unlimited financial resources, adequate
technological information for initiating a nationwide effective
abatement program will not be available until late FY 1975, two
years after water quality standards have been developed. By this
time, probably only 60 percent of the total new technology will
have been developed and tested. Some preliminary demonstration
results will be available in FY 1973, but the risk of designing
an entire attack on the problem with these limited tools is high.
Abatement schedules and a national impact assessment will have been
completed in FY 1975.
Water quality criteria for acidity and metallic elements in
drainage from metal ore mines is required by FY 1973. The water
quality standards implementation plans must be reviewed and expanded
by FY 1976 to include all mines and wells of established ownership.
Plans for abatement activities must develop implementation needs
on a priority basis for active mines by FY 1973 and abandoned
mines by FY 1975.
Enforcement will develop a model mining law in FY 1972 for
implementing State and Federal agencies. There will be a continu-
ing backup for States in obtaining compliance for operating mines
from FY 1973 on.
118
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Federal Activities Coordination will undertake in FY 1972 a program
to work with the Federal leasing agencies to provide pollution °
control measures in all leases.
Research, Development, and Demonstration will demonstrate by
FY 1973 how existing knowledge can be used to control mine drainage
in discrete areas, and develop control measures for abandoned
mines. Sixty percent of this needed technologv is expected by
FY 1976. y
Manpower and Training will initiate a series of short courses for
technological and legal training of mining, civil and chemical
engineers, geologists, and hydrologists in mine control technology
starting in FY 1971.
Technical Support will analyze the data available by FY 1972 and
obtain inventory data on operating mines by FY 1973. Base
information will be complete for abandoned mines by FY 1975.
State Program Grants will be used to increase the State capabilities
by increasing the staffs of the States by 400 professionals by
FY 1973 for active mines, and 600 additional staff for abandoned
mine program in FY 1976.
Mining grants for control of abandoned mine discharge are planned
for FY 1976 depending on Congressional action.
4.6.2 ANTICIPATED ACCOMPLISHMENTS FOR PROPOSED PROGRAM
Fiscal Year 1971
- Proposed legislation for financial assistance to
States for the control of abandoned mine discharge
(mining grants).
- Analyze available mine data.
Fiscal Year 1972
- Adopt State model mining laws.
- Include pollution control measures in leases
from Federal leasing agencies.
- Initiate short courses for technological and legal
training in pollution control for mines.
119
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Fiscal Year 1973-1976
- Enforce regulations and laws.
- Update short courses.
- Complete data analysis in key areas.
- Complete preliminary basin plans for implementation
of mine controls.
- Provide water quality criteria for private sector
mines.
- Demonstrate RD&D results on selected mines.
- Begin State mine inspections for compliance to
regulations and laws.
- Complete data analysis and basin implementation
planning.
- Demonstrate control measures for abandoned mines.
- Develop minimum adequate new technology.
- Start Federal grant program if legislation passed.
- Achieve compliance with water quality standards by
active mines.
4.6.3 SUMMARY OF PROGRAMS
Major milestones and interrelationships of the optimum and proposed
programs are shown in Figures 18 and 19 respectively. Differences
in the levels of accomplishment for the programs are shown in
Table 14.
120
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TAB! E 1L
ACTIVITY
Water Quality Standards
Basin Planning and
Systems Analysis
enforcement
legal Actions
Model Law
Federal Activities
Coordination
E. C. 11507
Regulations
OPTIMUM PROGRAM
Key Tasks Related to Mining
Develop criteria for metallic ions and
acidity
Review and expand implementation plans
to include all mines
Key Tasks Related to Mining
Jevelop implementation needs on a
:riority basis for:
- active mines, FY 1973
- abandoned mines, FY 1975
Provide backup to States in operating
mine control
Review existing mining law, develop
mode 1 1 aw
Provide review, technical support and
regulatory actions with respect to
annual leasing permits
Assist in implementing model law
principles into leasing arrangements for
mineral exploitation of Federal lands and
areas under Federal control
Implement positive programs for
interacting with Bureau of Mines
PROPOSED PROGRAM
ame as opt imum
ame as optimum
ame as optimum if budget
upplement for FY 1971
pproved
ame as optimum
ame as optimum
Provide desktop review
of new permits .
Same as optimum
Initiate meaningful
dialogue for cooperation.
, • •
IMPACT
rovides operational
efinition of quality
onditions which are to be
et
)e fine s problems and
ources on a priority
asis and provides
raplementation schedule
onsistent with compliance
y active mines by end of
Y 197^
Provides support to
ontrolling active mines
y end of PY 197^
Provides tools for
roceeding against active
Ines on effective and
-imely basis
Rovides control for
mineral exploitation
ndertaken under Federal
ontrol for some ICO, 000
xisting leases and new
eases on a current basis
hrough responsible
ederal agencies
Apply environmental qual-
ity control principles
through leasing arrange-
ments and mining tech-
nology.
121
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TA3IE
(continued'
MBUHG
AKD WEILS
ACTIVITY
OPTIMUM PROGRAM
PROPOSED PROGRAM
IMPACT
tesearcht Development
and Demonstration
Mine Drainage Treatment
Noaoperating Mines
Mine Closing Procedures
Mining Methods
Manpower Development
and Training
Technical Support
State Program Grants
Construction Grants -
Continue to develop promising techniques
for interim use at abandoned mines and
•for operating mines
Continue to seek permanent, economical
solutions to this problem and demonstrate
results for full application in FY 1975
Develop promising methods ir. FY 19'r?.
Develop and demonstrate 604 of all needed
new technology by FY 1975
Provide substantial research effort to
uoiTie Tve^w T&ining inet.ho4s for pollution
abatement impacts, develop and demon-
strate most promising. Initial results,
1973; significant new technology,
FY 1975.
Train 1,CCO professionals through
specialized courses by 1976 through short
course program. Provide support to ^OC
additional professionals by graduate
training support
Develoc base information on location,
pollution contribution and neurologic,
geologic and physical aspects of
abandoned mine pollution as basis for
cost-effective problem solution by
FY 1975-
Provide inventory data on operating mines
by FY 1973-
Provide monitoring of sources at some
1O,OOO sites between FY 1571-1973.
Provide incentive, direction and support
for liQC additional staff by FY 1973 and
600 more by FY 1976 to implement State
responsibilities under operating mine
and abandoned mine programs.
Provide grant support at 95$ Federal
share for abatement of abandoned mines
where responsibility for damages cannot
legally be placed. Begin at a modest
level in FY 1973 reaching $1 billion per
year level in FY 1976.
Program shifted to begin
in Ft 1973 rather than
Y 1971 due to resource
constraints
Program reduced by 50$
esulting in lesser number
cf demonstrated tech-
ologies by FY 1975
3ame as above; 6C*Jt nek-
technology not available
until FY 1J78
Sane as above
Significant new teaehno •
logy not available until
after FY 1976
Deferred one year because
of delayed full scale
assistance program shift
necessitated by .BD f, D
reduction
Program reduced by 50$ due
to resource constra-iiits
•linimal data collection
on operating mines.
Minimal at source moni-
toring.
Resources not, explicitly
budgeted for this task;
performance will be
dependent upon allocation
of total general purpose
tate Program grants.
Full scale construction
assistance program shifted
to begin after FY 1976 due
to reductions in RD 8 D
and Technology Support;
minimum adequate tech-
nolcgy to start not
available until FT 1976.
Technology currently exists
to meet optimum program
goels for operating mines.
telay in developing new
technology will result in
ligher costs of control.
Effect of reductions in
these three RD f E areas
.s to reduce technological
availability of demon-
strated controls to be
tpplied under construction
assistance program and to
increase costs. Cannot
start construction
assistance program on large
scale until FY 1976 at
earliest
No direct impact on
objective unless RD { D
restored to full funding
level
Reduces effectiveness of
construction assistance
program by jojj through
lower level of information
for planning program
Reduces data loss for
meeting active mine com-
pliance.
Increased uncertainty as tc
efficacy of controls with
decreased monitoring
Probability oT meeting
FY 1971* active mine
compliance diminished by
half; most likely compli-
ance date without this
program is 1980.
Delay start of full scale
attack on abandoned mine
problem by one year. Not
considered significant in
terms cf optimum 1990
compliance date.
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4.7 OTHER WASTES
4.7.1 SUMMARY OF PROBLi::! AT'D STRATEGY FOR ITS SOLlfTION
4.7.1.1 Wastes from Watercraft
The discharge of untreated sewage from vessels is commonplace. Very
few of the approximately 46,000 documented commercial vessels, 65,000
nondocumented commercial fishing vessels, and eight million recre-
ational watercraft using the navigable waters of the United States
are equipped with any type of sewage treatment or retention device.
Some classes of vessels will be required to use onboard retention
devices and thereby necessitate pump-out or shoreside treatment
facilities.
Two steps must be taken to provide adequate and uniform control of
the sewage discharge from vessels. A uniform set of vessel effluent
standards must be developed along with performance standards and
necessary procedures to certify the marine sanitation devices to
assure their compliance with the established standards. At the
same time packaged onboard sewage treatment devices and shoreside
treatment facilities for use at docks and marinas must be developed
and their feasibility demonstrated.
4.7.1.2 Recreation Pastes
Greatly increasing demands for recreational facilities on the Nation's
waters threaten to overtax waste collection and treatment systems now
serving parks and other recreation areas. While no comprehensive
assessment has been made, there are treatment design difficulties
relating to fluctuating heavy seasonal loads which must be overcome.
Therefore, it is essential that an assessment of overall needs, both
physical and technological, for recreation areas be made. It is also
necessary to establish better coordination between State and Federal
recreation agencies and pollution control agencies, since 89 percent
of all public recreation lands are federally-owned.
127
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4.7.1.3 Hydrological Modification
Hydrological modification, while not a pollution problem in itself,
vitally affects the impact of any pollutant or residual pollution
added to the water body. Any change in the flow regimen changes the
character of the ecological system and the added pollutants usually
cause magnified problems. An improved technical understanding will
be developed to determine the behavior and effects of bridge and
causeways. Also necessary is the development of appropriate
institutional mechanisms to implement alternative solutions which
will achieve modification objectives and at the same time preserve
water quality.
4.7.1.4 Construction
Construction of housing, factories, commercial developments, highways
and other trappings of urban growth presents a two-fold problem. As
areas are cleared for development, the soil is bared and natural
drainage is upset and accelerated, causing erosion and sediment-
laden runoff.
Sediments threaten public health and safety by carrying harmful
bacteria and materials into public water supplies. Excessive
sediment also interferes with water treatment operations. In areas
with combined sewer systems, increased runoff from rainstorms often
overburdens treatment facilities and, consequently, untreated sewage
is carried past treatment plants into streams. The cost of treating
water is increased when sediment interferes with water supplies. In
addition, sediments cause a considerable amount of water to be
displaced in reservoirs that are used for water supply, hydroelectric
power, flood control, or irrigation.
FWQA sponsored the development of a Community Action Guidebook for
Soil Erosion and Sediment Control. The task now is to encourage the
adoption of control programs at the local community level. In
addition, while the technical controls are available to control
construction sedimentation, more effective controls will be needed.
4.7.1.5 Natural Pollution
Increasing population growth and industrial expansion, particularly
in coastal areas where surface supplies of fresh water are scarce,
place greater and greater demands on subsurface fresh water resources
for municipal and industrial supplies. This is a form of pollution
that results from the withdrawal of a resource rather than from the
addition of a contaminant. As the volume of fresh water withdrawn
from underground increases in coastal areas or in areas close to
subsurface brines, there is a tendency for salt water to intrude
128
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into the aquifers more rapidly than fresh water can recharge the
supplies from land drainage, thus reducing the available supplies of
usable fresh \jater.
Salt water intrusion, however, means more than the intrusion of ocean
water into fresh water. In its broadest sense, salt water encroach-
ment includes salts of sodium, calcium, magnesium, potassium, and
other rarer elements. Critical salt water intrusion problems exist
now in New York (Long Island) , Florida, Texas and California, and
will undoubtedly spread rapidly to other areas as development of the
coastal zone continues to increase. All coastal areas, except Alaska,
and many inland areas have problems of salt water encroachment into
aquifers as well as other ground water quality problems.
Current efforts toward combating this type of pollution are directed
toward artificially recharging aquifers with fresh water. This is
being done with some success in southern California, but is of
limited applicability depending on the availability of high quality
fresh water at a suitable location for aquifers recharge. The use
of highly treated sewage effluents for ground water recharge is a.
potential means of control and should be particularly useful in some
coastal communities that now discharge their sewage effluent to the
ocean. In planning private, corporate, and governmental works, the
impact on ground water resources should be included in the scope of
planning. Perhaps the best way to combat salt water intrusion is to
decrease ground water use through better management of processes
requiring water recycling.
4.7.1.6 Dredging
Poor waste disposal practices and the lack of soil conservation efforts
have over the years resulted in a huge buildup of polluted deposits
on the bottom of rivers, harbors, and lakes. When these materials
are released into the water through dredging they naturally result
in pollution. Even unpolluted materials released into water may
result in unacceptable turbidity levels. Increasing turbidity may
also cover and smother shellfish and fish spawning areas resulting
in severe reduction and/or elimination of the specie population in
the area.
Dumping or disposal of dredged materials on shoreline land, the
development of shorelines, and the draining of marshlands result in
the destruction of ecologically necessary swamps and wetlands. In
many cases, these areas are presumed valueless in their natural
condition and, therefore, appear ripe for use as dredge soil disposal
sites and for development. When used for either dumping or develop-
ment, the area is destroyed and an important link in the ecological
chain is eliminated.
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The control of dredging in unpolluted and ecologically necessary
areas (marshes, swamrs, etc.) requires: development of better
dredging criteria: design and operation of a system to measure the
incremental encroachment upon the wetlands, to locate those areas
being "overdeveloped" or developed haphazardly within one year; and
determination of the short- and long-term effects on the ecosystem.
Practically all significant dredging activity for navigation is
performed or controlled by the Federal Government, particularlv
the Amy Corps of Engineers. Existing tools for control of
federally-performed dredging include: Environmental Policy Act of
1970 and implementing Executive Order; Executive Order 11507; and
proposed Great Lakes legislation to authorize a program providing
diked disposal areas.
4.7.2 ANTICIPATED ACCOMPLISHMENTS FOR THE PROPOSED PROGRAM
Fiscal Year 1971
- Promulgate vessel waste treatment standards.
- Collect basic data on recreation areas, salt water
intrusion, dredge and fill, and sediment runoff.
Fiscal Year 1972
- Develop certification procedures for vessel waste
treatment devices.
- Determine effects of hydrological modifications, dredging,
ground water recharge, sediment runoff control, and salt
water intrusion.
- Assess recreation area needs and treatment.
Fiscal Year 1973-1976
- Complete input to effluent standards for recreation vessels,
- Prepare construction runoff control legislation.
- Implement standards for new vessels.
- Coordinate effluent standards for military vessels.
- Identifv recreation area needs.
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- Pass new legislation for construction runoff.
- Develop necessary training for recreation area devices.
- Develop standards for ground water recharge, dredging
activities, construction runoff, and recreation vessels.
- Develop onboard treatment devices and recreation area
treatment devices.
- Develop abatement guides for military construction.
- Achieve 90 percent control of vessel wastes.
- Implement standards for all vessels.
- Coordinate with other agencies on dredging activities.
4.7.3 SUMMARY OF PROGRAMS
Major milestones and interrelationships of the optimum and proposed
programs are shown in Figures 20 and 21 respectively. Differences
in the levels of accomplishment for the two programs are shown
in Table 15.
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TABLE 15
OTHEB WASTES
ACTIVITIES AND IMPACT
ACTIVITY
Vastes from Watercraft
Research, Development
and Demonstration
Technical Support
Water Quality
Standards
Federal Activities
Other Federal Agencies
Recreational Use
Research , Development
and Demonstration
Manpower and Training
Technical Support
Federal Activities
f^drologic Mod if i-
c at ion
Research, Development
and Demonstration
Basin Planning
Technical Support
Natural Pollution
Re search , Development
and Demonstration
Technical Support
OPTIMUM PROGRAM
Develop and demonstrate treatment
Develop and demonstrate shoreside pump-
out and treatment facilities
Prepare effluent standards for vessel
treatment devices
Prepare certification procedures
Implement effluent standards for all
vessels
Coordinate effluent standards for
military vessels
Enforcement of vessel effluent standards
by Coast Guard
Determine character and volume of
recreational facility wastes and
evaluate treatment methods
Develop and demonstrate specialized
waste treatment systems
Determine manpower and training needs
Establish data base for water quality
standards development and define effects
of recreational use on water quality
Identify need for waste treatment
Prepare state-of-the-art report
Define problem and identify technical
and nontechnical constraints
Implement final methodology
Quantify water quality impacts
Establish data base, i.e. inventory
Investigate ccntrol methods for
siltation
Evaluation control methods for salt
water intrusion
Assessment of natural pollution problem
Determine feasibility of controlling
natural mineral springs
PROPOSED PROGRAM
No change
No change
No change
No change
No change
No change
No change
Deferred tvo years; full
funding beginning
FY 1973
No change
Deferred two years
No change
Deferred two years
Deferred three years
No change
No change
No change
No change
No change
No change
No change
No change
IMPACT
None
None
None
None
None
None
None
Changes impact no major
program milestones.
None
No major change.
None
No major change.
No major change.
None
None
None
None
None
None
None
None
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TABLE 15 (continued)
OTHER WASTES
ACTIVITIES AND IMPACT
ACTIVITY
Enforcement
Congressional Actions
Dredging and Filling
Research, Development
and Demonstration
Technical Support
Federal Activities
Congressional Action
Non-Federal Sectors
Construction Runoff
State Program Grants
Enforcement
Manpower & Training
Technical Support
Water Quality Standard
Research, Development
and Demonstration
Federal Activities
OPTIMUM PROGRAM
Determine feasibility of salinity
control; demineralization of natural
springs
Develop and implement ground water policy
Legislation on ground water use
Determine efforts of dredging and
alternative methods of dredge spoil
disposal; effects of canalization and
filling of wetlands
Conduct wetlands inventory
Develop bottom material criteria
Review and evaluate dredging proposals
Passage of legislation relating to
disposal of dredged materials
Adopt and implement land use and zoning
regulations
Local grant assistance program of $1.6
million in FY 197^.
Enforce construction runoff standards
in FY 197^.
Develop short courses in FY 1975-
Basic data collection begins FY 1971.
Construction runoff standards developed
in FY 1973.
Effects determination starts FY 1971.
Construction guidelines developed in
FY 1972.
Develop abatement guidelines for mili-
tary construction in FY 1972.
• ' — —
PROPOSED PROGRAM
No change
No change
No change
No change
No change
No change
FY 1971 reduced by 60%
Tfo change
No change
No change
No change
No provisions
No change
No change
Effects determination
starts FY 1972-
No provisions
Delay until FY 1975.
— •
IMPACT
tone
lone
None
None
tone
tone
Delays establishment of
100$ effective program.
tfone
None
None
None
Dissemination of knowledge
on construction runoff
controls is not programmed
None
None
Technical base is delayed
one year.
No guidelines produced for
construction industry thru
FY 1976.
Credibility suffers.
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SECTION 5
PROGRAM MANAGEMENT
5.1 PURPOSE
Program management provides the means of developing and carrying out
plans to achieve water quality goals by cost-effective use of
resources. An objective-oriented management approach is employed by
FWQA to implement its National Plan and Strategy for Water Quality.
Under this approach, resources are allocated and programs executed
in a manner that permits progress toward achievement of objectives
to be explicitly measured and controlled by established milestones.
With demographic, economic, and water quality information as a base,
the scope of the problems will be determined through water quality
standards and planning; resources allocated on a rational, scheduled
basis: and program implementation directed by monitoring, measuring,
and control.
The approach includes the following essential elements:
(1) Planning to assure total identification of problem needs
and identification of alternative approaches for achieving
solutions.
(2) Action criteria to assess situations and needs, and to
establish priorities.
(3) An information system to provide basic management
information and to allow dynamic control of progress.
(4) A management commitment to assign responsibility of
identified solution-oriented tasks and to measure
progress against stated goals for effective control on
an ongoing basis.
5.2 SPECIFIC REQUIREMENTS OF FWQA MANAGEMENT
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The basin or regional/metro plans are dynamic entities, subject to
continual updating to reflect changing population needs, economic
conditions, and pollution levels. These plans also reflect the
changing requirements for meeting water quality standards which are,
in turn, subject to continual updating. Because of these shifting
requirements as defined by planning, FWQA must retain the flexibility
to be responsive to changing situations and must be able to adapt to
changes in interim goals as determined by current plans. Basin and
regional/metro plans, together with action criteria to establish
problem priorities, provide the basis for allocation of resources
on a scheduled, controlled basis.
The interrelationships of these management components are shown in
Figure 22. An integrated information system will provide the means
of measuring progress on a dynamic basis and will serve as a
management and planning tool, in addition to being a technical
operating and monitoring system.
5.3 CRITERIA FOR ACTION
A rational, objective means is being developed to determine how
resources should be allocated—that is, a set of criteria for
ranking problems, needs, and priorities for action. Although
legislative and political constraints place limits on FWQA's
ability to direct funds and efforts into areas of greatest need,
the increasing level of construction grant funds x*ill permit greater
flexibility since there will in all probability be additional funds
available for reallocation.
Effective national-level planning can proceed effectively with these
action criteria. With quantifiable measures, realistic planning
can be done and progress can be measured. In addition, the application
of resources in a cost-effective manner can be assured since measures
will exist in a visible form.
A set of criteria based on indices which will indicate: (1) severity
of pollution, (2) need for abatement, and (3) priority for action in
any specified area, is being developed. These indices will be
directly involved in development of water basin plans and the
evaluation of State programs which are major inputs to the national
plans. Together with the cost of action, these indices are im-
portant inputs to the Planning, Programming, and Budgeting System
(PPBS).
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5.4 INFORMATION SYSTEMS
In order to monitor the progress of achieving water quality objectives,
management information of some form is essential. For an organization
with programs and interfaces as complex as those of FI-7QA, an automated
system is indicated.
FWQA is currently undertaking an assessment of its total needs for
information processing. This is expected to lead to the development
of an integrated information system that will provide timely,
organization wide information in a form adapted to the needs of each
managerial level. Such a system will utilize existing data bases
and equipment to the maximum extent practicable.
5.5 FEDERAL ASSISTANCE REVIEW
FWQA must be concerned with the efficiency and effectiveness with
which the various grant and control programs are delivered to the
user—in most cases States and municipalities. A review of all
programs was initiated by FWQA in early 1970 with initial focus
on the construction grant program (Construction Grants Study,
April 1970). This effort is being upgraded to cover other FWQA
grant and technical assistance programs and will, by 1972, form the
basis for a continuing administrative audit program.
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