United States
  Environmental Protection
  Agency •
Office of
Public Affairs (A-107)
Washington. DC. 20460
Volume 8
Number 2
March-April 1982
&EPA JOURNAL

-------
                        :: -TION
              1.  j.  ..  ',-  6  H Y   •
A  Water
Review
In this issue of EPA Journal,
  we report on several different
aspects of water use and abuse
by people.
   EPA  Administrator Anne M.
Gorsuch reviews drinking
water problems and the
legislation designed to help
cure these  ills. Deputy Ad-
ministrator John W. Hernandez
outlines the administration's
views on aspects of the Clean
Water Act.
   Eric A. Eidsness, EPA's new
Assistant Administrator for
Water,  explains the approach
he is taking to improving the
agency's water programs. An
article on the  Charles River in
Boston  outlines progress made
by a citizen-state-federal team
in curbing the  environmental
maladies of this ancient
waterway.
   An article on the lake trout
in the Great Lakes explains
how these fish could help serve
as indicators of the water
quality for these lakes. Another
article gives a  report on how
hot water discharges from a
municipal power plant helped
Canada geese survive a bitterly
cold winter.
   Other stories on water and
pollution include one about a
nationally recognized waste
treatment pilot plant in Mis-
souri and a survey on the effec-
tiveness of  some drinking
water filters.
   In an interview,  Dr. Earnest
F. Gloyna,  chairman of  EPA's
Science Advisory Board, gives
his views about environmental
problems and opportunities.
   This  issue also reports on a
number of new appointments
which have been made at EPA.
D
An aerial view of a spectacular
section of the California coast

-------
                               United States
                               Environmental Protection
                               Agency
                               Office of
                               Public Affairs (A-107)
                               Washington, D.C. 20460
                               Volume 8
                               Number 2
                               March-April 1982
                          &EPA JOURNAL
                               Anne McGill  Gorsuch, Administrator
                               Byron  Nelson III,  Director, Office of Public Affairs
                               Charles D.  Pierce, Editor
                               Truman Temple, Associate Editor
                               Articles
                       protect
the Nation's land air and water systems
          (,ile of national environ-
                      is to for-
                  •i TIS which lead
                      in human

                 ' nuiture Me

The EPA Journal is published bi-monthly
by the U S Environmental Protection
          ,if funds for punting this
                .;rov:nl by the
        the Office of Management
                  M;d by authors
lie noT* necessarily reflect EPA policy
     -dons and inquiries should be ad
                  i i)7] Waterside
Mall 401 M Si . SW . Washington. DC
20460  No permission necessary To
          tents except copyrighted
Drinking Water Problems
and Solutions  2
EPA Administrator Anne M.
Gorsuch analyzes the Safe
Drinking Water Act
Clean Water Act  Improve-
ments  5
Proposed amendments seek
mid-course corrections
Water for Living
Assistant Administrator
Eidsness outlines his ap-
proach  to the water  program
Better Days for the Charles
River 13
A  report from  Boston on
progress made  by  a  citizen-
State-Federal team
  o
Science for the Future 15
An interview with  a  noted
scientist,  Dr. Earnest F
Gloyna
Lake Trout: Bellwether for
the Great Lakes 18
Trout could help indicate  the
future quality of water in  the
lakes
Superfund  Contingency
Plan  Announced to help
Clean up Sites  22
Administrator Gorsuch
proposes  new guidelines for
hazardous wastes
Appointments and
Awards  24
New  woman assistant ad-
ministrator  among those
named
Missouri  Treatment Plant
Recognized 27
Waste treatment facility
honored in  national contest
Conference on Fire Ants 28
Ways of curbing the fire ant
will be  examined  at a  June
meeting
Giant  Geese Survive
Another Winter 30
Hot water discharges from
power plant help  geese
through frigid winter
Some Drinking Water
Filters  Found Effective 32
New tests done for EPA show
filters can remove chemicals
  O
                               Front Cover. Little girls feeding ducks on
                               Washington Lake near Seattle. Wash
                               Photo Credits  Steve Delaney. John
                               Goerg. Charles River Watershed Associa-
                               tion. Margaret Faulkner, Harvard Un-
                               iversity, U S Fish and Wildlife Service.
                               USDA. Phoin, Ted Rozumafski
                               Design Credits Robert Flanagan and Ron
                               Farrah
                               EPA. JOURNAL
                               Subscriptions
                               The annual rate for subscribers in the
                               U.S. for the bi-monthly EPA Journal is
                               $9,50. The charge to subscribers in
                               foreign countries is $11 90 a year The
                               price of a single copy of the Journal is
                               $2.75 in this country and S3 45 if sent to
                               a foreign country. Prices include mailing
                               costs Subscriptions to EPA Journal, as
                               well as to other Federal Government
                               magazines, are handled only by the U.S.
                               Government Printing Office. Anyone
                               wishing to subscribe to the Journal
                               should fill in the form at right and enclose
                               a check or money  order payable to the
                               Superintendent of Documents. The re-
                               quest should be mailed to: Superinten-
                               dent of Documents, GPO. Washington,
                               D.C.,  20402
                                Name-First, Last  Please Print
                               j Company Name or Additional Line
                                            i  I
                                             _L
                                Street Address
                                City
                                                  Zip Code
                               D  Payment enclosed
                               D  Charge to  my Deposit Account No.

-------
Drinking   Water   Problems
and  Solutions
By Anne M. Gorsuch, EPA Administrator
                                       The Safe Drinking Water Act.  whose
                                         authorization expires September 30. has
                                       been an  important  part of the body of en-
                                       vironmental protection laws since its enact-
                                       ment eight years ago. The Act  authorized
                                       EPA to set uniform drinking  water standards
                                       nationwide, requires drinking water systems
                                       to notify their customers of  failures to meet
                                       standards and monitoring requirements, and
                                       also deals with controls on  underground in-
                                       jection wells to protect drinking water
                                       aquifers.
                                         Like other laws, of course, the Act may
                                       need to  be revised from time to time to
                                       reflect changing conditions.  EPA is now
                                       weighing a number of proposed changes
                                       following public comment and meetings held
                                       earlier this year.
                                         Among those questions:
                                         How should EPA and States use  exemp-
                                       tions and variances for small drinking water
                                       systems  that have  trouble meeting stan-
                                       dards?
                                         Should the pubiic be notified of every
                                       standard violation, no matter how minor, af-
                                       fecting drinking water supplies?
                                         Should, the standards be  separated into
                                       categories, i.e., those applying to all systems.
                                       those  applied flexibly by the States,  and
                                       those  of a non-regulatory nature such as
                                       "health advisories?"
                                         In considering these proposals and the
                                       broader question of how EPA can best meet
                                       its responsibilities  to taxpayers, it should be
                                       kept in mind that several objectives of Presi-
                                       dent Reagan's administration are highly rele-
                                       vant to the Agency. These include regulatory
                                       reform, protection of the  environment
                                       without  impeding  economic progress, a
                                       closer partnership with the States, and better
                                       controls on Federal spending.
                                         Regulatory reform does not  mean
                                       deregulation, the wholesale  abandonment of
                                       rules.  Rather it describes the simplifying of
                                       the  regulatory  process, lifting the burden of
                                       paperwork and attendant delays and costs to
                                       industry and the public.
                                         We already  have made substantial
                                       progress in this area. An example was  the
                                       settlement last July of lawsuits dealing with
                                                               EPA JOURNAL

-------
protection of underground drinking  water
supplies from  contamination  by  fluids from
injection wells. Briefly, the history of this case
is that in  1980  EPA issued rules requiring
States to develop programs to protect these
water supplies from  such contamination.
Subsequently  a  number of companies and
the  State of Texas sued EPA over the regula-
tions. The settlement we reached last year
provided  protection of valuable underground
drinking water sources without imposing ex-
pensive, unnecessary requirements on in-
dustry. The agreement is expected to save
the  affected companies  $65  million  to S75
million over five years, and does away with
certain repetitive testing  requirements
related to injection wells, reduces the number
and frequency of reports required, and
clarifies regulatory language.  EPA proposed
some of the settlement's terms  as amend-
ments to State Underground Injection Con-
trol programs,  and after receiving  public com-
ment, these became effective March 5 this
year.
  The drinking water program is an out-
standing  example of what we mean by  a
close  partnership with the States. Forty nine
out of 57 States and jurisdictions such  as
U.S. territories and  possessions have primacy
now in this area, where they  have adopted
EPA standards or  imposed more stringent
ones of their own, and are responsible for en-
forcement.  (EPA directly runs  the other eight
but is encouraging them to assume  primacy
where possible.)
   In fact, the increasing role of State govern-
ments in the drinking water  program has
made it possible in part  to scale down our
1 983 proposed budget by $14.1  million and
44  personnel to a total of $69.8 million and
456 employees. The economies also reflect
simplified administrative  requirements,
reduced regulatory demands,  and a focus on
the most serious State problems.
   Congress clearly envisioned that the
States should  play  a major part in the control
and regulation of drinking water supplies
when the law was enacted,  as  indeed
legislators  intended in other  environmental
legislation  now  on the books. Historically,
State and local governments have undergone
a remarkable  maturing in their ability to
manage a wide range of problems. The
fastest expansion in government work forces
has been  under way for years  not in
Washington,  D.C. but at  the State and local
level. Since 1960, the number of employees
in  the  latter categories has more than
doubled, from six million to 13  million. They
now outnumber their Federal counterparts by
more than four to one. It only makes sense
that the nation  should take advantage of this
increase in staffing and competence and-give
more responsibility  and control to the local
level, where officials often have a better
grasp  of problems and conditions.
   At the  same time EPA will continue to
provide support of our regulatory office's
promulgation of revised drinking water stan-
dards.  This includes studies  on the  oc-
currence and health effects of contaminants
in  drinking water, including underground
sources of such supplies. Our research also
will continue  to support the development of
treatment  technology that is  both cost-
effective and technically feasible.
   As  a measure of the changing nature of
environmental problems, EPA now is con-
sidering various ways of controlling a group
of  chemicals  known as volatile synthetic
organic chemicals (VOCs) frequently found in
drinking water  supplies, especially ground
water.  The chemicals  get into such supplies
as a result of improper industrial discharges.
by leaking from underground storage tanks,
or  by seepage  from landfill disposal  sites.
   Efforts  to curb these toxins in our drinking
water have been uncoordinated in the past.
We are considering a number of ways to con-
trol these  compounds. Whichever course we
choose, it will  come only after a  thorough
scientific and public review of the issues.
    EPA is considering several options to br-
ing some  national order  to this situation.
These include continuing to give guidance to
the states on controlling these compounds;
requiring regular monitoring for the com-
pounds, again relying on the states for im-
plementing controls; or issuing EPA-
enforceable standards for some or all of the
compounds. Whatever course we choose, it
will come  only after a thorough scientific and
public  review of the issues.
   EPA currently is considering controls on
up to 14 volatile organics, but other, similar
compounds  also may be of  concern to the
agency.
   Traces of volatile organics have been
found in about  10  percent of drinking water
wells studied by various groups, including
EPA.  Rivers, lakes  and other surface waters
subject to industrial discharges also are likely
to contain the compounds but  usually at
levels considerably lower than those found in
contaminated ground water.  Slow-moving
ground water lacks the ability of a  flowing,
surface waterway to flush itself of pollutants.
   Levels of contaminants like trichlorethy-
lene and tetrachloroethylene  in ground water
can be up to 1 or more parts per million.
Typical readings in contaminated surface
water usually are much  less than five parts
per billion.
   Water treatment methods effective in con-
trolling volatile organics include aeration  and
filtering through granular activated  carbon.
The choice of a cleanup method would be left
up to the water utilities,
   Preliminary EPA estimates indicate that
the cost  of  controlling these organics in
larger drinking  water systems (10,000 or
greater population) could add roughly $1 or
$2 to customers' monthly water bills. The
monthly increase to users of  smaller systems
with this type of contamination  could range
from  $5  to  $14.
   EPA plans to hold technical workshops in
several parts of the country  on the best  ap-
proach to curbing these organics in drinking
water.
   After reviewing  comments at these
gatherings and  any other written comments
received, the agency will propose a course of
action sometime later this year. In the mean-
time, EPA will continue to give guidance to
the states on acceptable  levels of these con-
taminants in emergency situations,  d
MARCH/APRIL 1982

-------

-------
Clean  Water Act

Improvements
Excerpts from testimony by
Deputy Administrator John W. Hernandez
before the House Subcommittee
on Water Resources
EPA and the Administration are fully commit-
ted to the Act's fundamental objective of
restoring  and  maintaining the chemical.
physical,  and  biological  integrity of the Na-
tion's waters.  We  believe that the Clean
Water Act is basically a  sound statute. Most
of the problems associated with the Nation's
clean water program we believe  have
resulted from  the way in which the Act has
been implemented, not  from the  Act itself,
   I would like to  focus on some of those
problems, primarily relating to effluent limita-
tions, pretreatment, and the national permit
system.
   We face a  major responsibility in at-
tempting  to continue the many positive and
constructive initiatives begun under the Act
while correcting those aspects that have not
worked out as intended. The challenge before
us is to draft reasonable  requirements while
avoiding the extremes of over regulation or
under regulation. This requires a willingness
to examine new approaches and  to  re-ex-
arnine existing and old ones.


industrial Effluent Guidelines

The Clean Water Act requires compliance
with technology based industrial  effluent
guidelines in two phases. Industries were re-
quired to comply with the first level of control
known  as Best Practicable Control
Technology (BPT)  by 1977.  BPT  standards
were met by approximately 81% of the affec-
ted industrial categories by the July 1. 1 977,
deadline,  and  a full 94% of industries have
now met  the  appropriate requirements.
   A second level  of control. Best Available
Technology Economically Achievable (BAT),
is  required for "toxic" pollutants by  1984.
Control of "non conventional" pollutants
must be achieved  no later than 1987. Best
Conventional Technology (BCT) for  the
traditional "conventional" pollutants must be
met by industry in  1984
   Progress toward the second level of
BAT/BCT controls has been less successful.
We do not believe that industry can meet the
1984 compliance deadlines, chiefly because
the Agency has encountered substantial dif-
ficulties  and time delays in promulgating
these guidelines. The  reasons for these
delays are discussed at greater length in my
statement for the record. Briefly stated here
these delays developed  because no com-
prehensive information for toxic materials ex-
isted requiring development of an extremely
large data-collection and analysis program
   On the  basis of our experience with the
BPT level of control, we have found that well-
operated biological  treatment systems can
effectively control many of the toxic materials
of concern. Because BPT effluent guidelines
for controlling conventional pollutants
provide treatment that is also effective in
controlling toxic organics and heavy metals.
in some cases further control measures may
be unnecessary.
  The substantial progress already achieved
through BPT was not achieved without in-
curring major  costs however  Industry may
ultimately spend as much as $18 billion in
complying  with  BPT requirements.
  While we believe the basic content of the
Act is sound, some revisions deserve serious
consideration. First, we agree with  the
generally held opinion that the Agency's BAT
promulgation schedule cannot provide for an
orderly industrial implementation program by
the July 1  1984. compliance deadline. We
believe, therefore, that an extension of this
deadline is warranted to  provide  industry
with  adequate lead time in which to comply
with  additional treatment requirements.
  Second, we recognize that we cannot
tailor broad-based regulations to  cover all
site-specific environmental conditions.
Therefore consideration should be given to a
waiver of BAT/BCT  requirements where BPT
standards are left in place and where dis-
chargers can demonstrate that their current
level of treatment provides for meeting water
quality standards, and fully provides for
meeting water quality standards, and fully
provides the  necessary environmental
protection.
  Some have suggested that we eliminate
BAT  altogether  in favor of a water quality
control program with a BPT  floor. Although
we believe that water quality based control
programs can  be used down the road, we do
not think that we can rely strictly on the
water quality based control approach in the
immediate future.
MARCH/APRIL 1982

-------
Pretreatment

The Clean Water Act requires EPA to es-
tablish pretreatment standards for indirect in-
dustrial dischargers to keep their waste flows
from interfering with the operation of publicly
owned treatment works (POTWs), to prevent
the pass through of inadequately treated
wastes to receiving waters, and to avoid the
contamination of municipal sludges.
   EPA  has adopted  two kinds of pretreat-
ment standards, general and categorical The
general  pretreatment regulations were
promulgated June 28, 1978 and established
the administrative and procedural framework
for  the National Pretreatment  Program.
   Some categorical  standards have been
promulgated by EPA and others  are  being
developed. The most far-reaching of  these,
tin: (ili:clto|)l;itin(| Mnndcim. was amended in
January  1981 and is currently in  force for
parts of the industry.
   However, the program has been the target
of extensive criticism. Cities contend that
variations in discharge standards for the
same pollutant between industrial categories
is unjustified and administratively confusing.
They  also argue that mandatory national
categorical standards do not give enough
flexibility to cities who already  have exten-
sive  and  successful  local programs.  Industry
asserts that the  removal credits provision of
the general standard is unworkable and
results in treatment for treatment's sake.
   The Administration's review  of the
program  indicates many of these  criticisms
are legitimate. We have  already initiated
some remedial actions. To address others we
will be requesting that  Congress make some
modifications in the Act.  Our goal is to have
an environmentally  sound, genuinely
workable, and cost  effective program.
Basically, we believe that more flexibility is
needed in the Act, and that more control and
responsibility for pretreatment must be given
to local government.
   To promote  certainty and facilitate
municipal planning,  the Agency is  moving
ahead with development of its comprehen-
sive sludge policy. Taken together, these and
other actions should result in real progress
and avoid the extremes of over regulation
and under regulation.
Permits and Enforcement

The National Pollutant Discharge Elimination
System (NPDES) provides for the issuance
of permits to all direct point-source dis-
chargers. The Act provides for permit
issuance both by EPA or by State authorities
where  EPA has  approved  a  State's  permit
issuance program. To date, there  are 33
States  with approved NPDES programs.
   EPA  and the  States have issued  65,000
"First round" BPT permits. Many  of these
permits were reissued, but only for  two or
three year terms and have again  expired
Progress has been made in municipal permit
issuance where 75% of the majors and 30%
of the  minors  have  been issued. Also, over
                                                                                                                EPA JOURNAL

-------
1 1.000 five-year industrial permits have
been reissued. Nonetheless, at present,
30.400 permits have expired and need to be
reissued, and over the next three years, the
remainder of the  first round permits will ex-
pire.
   Most of the expired permits remain in ef-
fect under provisions of the Administrative
Procedures Act which allows for automatic
extension pending reissuance, provided
timely  and complete permit applications are
submitted. However, the combination of the
volume of permits that need to be reissued
plus the uncertainty involved in  developing
BAT limits in the absence of promulgated
guidelines poses the largest implementation
problem  for  the  NPDES permit program.
   Effluent guidelines for all industry
categories will be promulgated in  FY 1982
and 1983 and this will significantly  reduce
the time required to develop permits for the
industries covered. In addition, EPA plans to
evaluate making greater use of general per-
mits, especially for  minor  facilities. This will
ailow permitting authorities to cover classes
of facilities in a single  permitting action and
thereby conserve resources for major,  com-
plex facilities that need individual  permits
without loss of environmental  protection.
   Finally, we are revising the  Consolidated
Permit  Regulations  to streamline our permit
issuance procedures. The major benefits will
be an increase in State flexibility in  ad-
ministering permit programs, a reduction in
costs and reporting burdens for permittees
and the States' operating permit programs,
and an  expedited permit process through
streamlined  regulations and application
forms.
   Beyond these regulatory and ad-
ministrative actions, we believe consideration
should be given to  extending the life of  an
NPDES permit from a maximum of 5 years to
a maximum of 10 years. This statutory
change would allow more efficient and effec-
tive use of current  levels of permitting
resources and provide  more certainty over
time for wastewater treatment requirements
determined by permit limitations.
   In addition, the concept of partial State
NPDES permit program approval is being
considered. Partial approval may provide
further incentive for certain States to assume
elements of the NPDES program.
   With respect to enforcement of permits.
EPA's activities prior to FY 1981 focused
primarily on industrial compliance and enfor-
cement. As a  result of these efforts and  in-
dustry's response, there is presently a  90 per-
cent major industrial compliance rate. Begin-
ning in FY 1 981 increased emphasis has also
been placed on municipal compliance  and
enforcement, and there is now a 76 percent
compliance rate for major facilities. We are
also considering significant changes  to our
discharge inspection techniques that we
believe will make our water enforcement  ef-
fort more effective  and efficient.
Other Issues

In view of the complexity of the Act, and the
history of its implementation, even  lengthy
testimony will not cover  all  of the issues.
   Management  of municipal sludge is of
course one area that will be receiving in-
creasing  attention as the  problems of sludge
treatment and disposal grow every day with
the implementation of more sophisticated
control measures.
   A further issue of special concern involves
a recent  court decision designating dams as
point sources under the Clean Water Act. As
we do not believe that most dams and reser-
voirs pose a significant threat to water
quality, and  in view of the over  two  million
dams in  the United States,  thousands of
which might require permits under this deci-
sion, we are  looking at possible legislative
amendments to  address  this situation.
   Development  of State Water Quality stan-
dards and the application of national EPA
water quality criteria to local conditions will
also be examined closely.
   Th'e section 404 dredge and fill program is
another area that will receive close scrutiny
in the months ahead. Presently, the program
is under  review  by  an Administration
regulatory reform task force. This group will
assess the problems in the  program and
provide  recommendations at a  later date.
Conclusion

In conclusion, we believe the Clean Water
Act can and will remain the principal effec-
tive means for achieving clean water across
the Nation. Cleaning up our streams and
rivers, our ponds and lakes, our harbors and
estuaries is indeed  a sound, necessary and
practical  national objective.  Most of the
problems we have encountered can be
resolved  efficiently and  effectively through
the administrative and  regulatory
mechanisms available under the Clean Water
Act  However, greater flexibility in im-
plementing the Act will add significantly to
our effectiveness and will reduce the costs of
compliance. D
MARCH/APRIL 1982

-------
t
                                                                                  EPA JOURNAL

-------
 Water   for   Living

An Interview with Frederic "Eric" A. Eidsness Jr.
EPA Assistant Administrator for Water
                                 vJ What are your main goals
                                in  your new post  as Assistant
                                Administrator?

                                 r\ I am firmly committed to the
                                goals of environmental  protec-
                                tion and a strong economy.
                                These are goals I share with the
                                President and the Administrator.
                                While I will be working  to help
                                achieve these overall goals
                                through regulatory reform, I have
                                two management goals  of my
                                own which  are essential to
                                meeting the broader goals.
                                   One is to open up our
                                regulatory development process
                                from the beginning and to work
                                cooperatively with  state  and
                                local governments  and the
                                regulated community in  the
                                process. The second goal is to
                                get control of resources in the
                                Office of Water and to  better
                                manage those resources from
                                the top down. From what  I've
                                witnessed since I've been here
                                there is fertile ground for doing
                                that.
                                Li What approach do you plan
                                to take to achieve thesegoals?

                                A I hope that by setting clear
                                policy  direction and by constant
                                dialogue with my  top managers
                                and mid-level managers that  I
                                can instill in  them a perspective
                                of environmental  protection that
                                reflects my local  orientation  I
                                hope to show the people  in the
                                Office  of  Water that EPA  in
                                Washington is not the center of
                                the universe. The center of our
                                attention  should be that par-
                                ticular lake or stream out  there
                                whose water  quality must be im-
                                proved or protected. We need to
                                recognize that those who  are
                                closest to those bodies of  water
are just as concerned as we are
about the protection  of the en-
vironment in general  and water
quality in particular.
   On my second goal of manag-
ing resources more effectively,
we have initiated a number of
new  management policies. One
of these policies is the  develop-
ment of annual work plans for
each of the administrative units
in the Office of Water.  These
work plans will be developed and
used by the lower and mid-level
managers and  not by the Assis-
tant  Administrator for Water.
Soon after coming here  last Sep-
tember. I became keenly  aware
that  EPA's management and
resource planning documents
have been designed for  the prin-
cipal purpose of letting the
agency comptroller and  the Con-
gress know where the money's
going. The old system did not
serve the purpose of  managing
our resources to meet our com-
mitments. In the future, our work
pJans will be used to  provide in-
formation for the manager to un-
derstand his commitments, how
his resources are to be used and
in what priority, what outputs are
expected and when.
   Another initiative is the in-
stitution of a lead  role concept.
As an example, we have various
branches and divisions within the
Office of Water doing the same,
if not similar, work with little or
no cross fertilization of ideas, ex-
periences, and approaches.  As
an example, the lead role con-
cept applied to risk assessments
for  human  health would assign
the responsibility for develop-
ment of methodology and  data
analysis to the Office of Drinking
Water. One of the benefits of this
concept is that when I  have a
problem. I can call my  office
directors in the room and ask just
one of them  "What happened?
Why wasn't the job done right?"
This approach to fixing respon-
sibility will  also reduce overlap.
duplication of effort and max-
imize the use of our resources.


 (-1 What is the basic
philosophy that will guide you
in your new post?

 AI don't believe that EPA is
wiser, more powerful or more
motivated in  protecting the en-
vironment than anyone else. I
think that generally the average
citizen, small town, big city, in-
dustry, and State will do the right
thing if they understand what the
probfem is. I view as unfortunate
the attitude exhibited in the  past
by certain EPA officials that
everybody is presumed guilty un
til proven innocent and that the
only organization that can define
and solve environmental
problems is EPA. This has
resulted in  a  reputation of
arrogance  that is ill deserved by
most  EPA employees and in
regulations that are overly com-
plicated  with  procedure and
MARCH/APRIL 1982

-------

which get in the way of state and
local initiatives. I  guess  that to
sum up my philosophy, I  believe
that by opening  up on internal
processes, working cooperatively
with others and  simplifying our
regulations we will make  greater
strides in protecting  the
environment
    What parts of the water
program in your view are in the
most urgent need  of
redirection?

 M Perhaps the greatest
challenge that faces both EPA
and  the States is to bridge
the  enormous guff  between in-
dustrial and municipal  pollution
control regulations and  discharge
permits which translate these
regulations into reality for the in-
dividual municipalities  and in-
dustry. We know that  permits
have been written that do not
reflect good scientific and
economic analysis,  or are based
on regulations that have  not
been subjected to adequate peer
review and public debate. In
other instances no  regulations
exist. Permit writers are  put  in
the  most untenable position  of
making fundamental public
policy, public finance or industry
investment decisions without
policy oversight,  without  peer
review, and without public
debate. So we're going to take
steps to try to identify the
specific problems and  remedies
associated with  this gap so that
the  permit writers won't  be de
facto rule makers.
    What are your views on
regulatory reform?

A Reforming environmental
regulations is an  absolutely es-
sential piece of the President's
overall national agenda. The Of-
fice of Water's basic approach
taken in  the past was  to write
into regulations all that the Acts
would allow.  The result of this
approach has been a mountain of
rules, regulations and guidance
which attempt  to identify every
possible  situation that a State  or
local  government or member  of
the regulated community might
find itself in and  to prescribe  a
remedy. The consequence of this
practice has been to overly com-
plicate and in many cases
obscure  the basic intent of the
Acts.  Now we're trying to  go
back  through these complicated
regulations to identify  essential
requirements.  At  the same time
we're trying to reduce procedural
requirements so that we can get
regulations geared to results
rather than to following
procedures. However I  want to
point out that the regulations we
are tackling have been built,
defined and redefined  over the
past  ten years by their applica-
tion and court suits. We are not
revising  these regulations with a
meat cleaver but are carefully
going through them with surgical
tools to cut out the fat and leave
behind regulations  which are
lean, clearly reflective  of the
statutory requirements and
which demonstrate an  attitude
that those who read them are at
least as  intelligent and fair min-
ded as those who wrote them.
Most importantly, the regulations
revised under this Administration
will reflect a strong commitment
to environmental protection
which we believe will withstand
time.


    Do you see a need to shore
up leadership and manage-
ment oversight in the Office of
Water?

   , Yes.  The Off ice of Water
publishes reams of so-called
guidance documents every year.
Frequently,  one  of these docu-
ments might say something  to
the effect that, "it is the agency
policy that.  . ." The effect of such
"policy"  statements is twofold
on states, local  governments,
and regulated community.  (1)
They get mixed  signals from dif-
ferent program offices. (2) By
declaring something is agency
policy in a rather casual manner
in a guidance document, it
becomes the agency policy even
though it is not set by the
leadership of the agency. In order
to solve this particular problem
we are tightening control over
guidance documents and we
have a policy on "policy".
Although that usually  gets a lot
of laughs when I mention it, it's  a
pretty serious matter. This policy
on policy in effect states that
there are only three kinds of
policy for EPA Water. One is
regulations, the second is a self-
standing policy document signed
by the Administrator of EPA,  and
the third is a self-standing policy
document signed by the Assis-
tant  Administrator for Water.
Everything  else is  guidance.
Guidance, furthermore,  should be
construed as EPA's best judg-
ment on one cost effective  way
of solving a problem that reflects
the best science and experience
we and the States  have had over
the years.


    What are your views on the
subject of sludge disposal?

 t'\ Sludge management is going
to be one of the great challenges
of the  1980's. The volume  of
sludge has increased  steadily in
the last decade and is expected
to increase dramatically  in  the
future. Simultaneously, suitable
disposal sites are  diminishing
nationwide and in  some areas of
the country are becoming un-
available. Nobody  wants to have
a sludge management or solid
waste disposal facility in his back
yard.
   The problem comes home to
EPA because most of the sludge
is produced by environmental
control  equipment that  is re-
quired by EPA under  the Clean
Water Act, the Clean Air Act, the
Safe Drinking Water Act, and the
Resource, Conservation,  and
Recovery Act.
   Municipalities are among
those who are pressed hardest to
determine suitable methods for
disposing or  reusing sludge. For
example, sewage  sludge is  a
byproduct of municipal  waste
treatment. The chemical proper-
ties  of this sludge vary  ac-
cording to the type and  amount
of industrial waste which is dis-
charged into municipal treatment
facilities. Not knowing what their
regulatory choices are,
municipalities are  finding it  in-
creasingly difficult  to plan for the
cost effective disposal or  reuse of
sludge.  EPA  has a responsibility
under the Clean Water  Act  to
prepare sludge  management
guidance. This has become a ma-
jor priority within the Agency for
the current year.  I am confident
that the exercise will not only
provide municipalities with a
wide range  of choices for dis-
posal and reuse of sludge as it
relates  to the characteristics of
that sludge but will also allow
them to make choices based
upon an understanding of the en-
vironmental and health risks that
may be associated with  various
 10
                                                                                 EPA JOURNAL

-------
options, i  would  like munici-
palities  to share the burden of
making such determinations with
the regulatory agencies. I believe
they will do so and do so respon-
sibly as they recognize better
than we at the Federal level that
the lower  the risk the higher the
cost.
    What are your views con-
cerning  EPA's responsibilities
to protect the oceans from
pollution?

    I must confess that I have a
strong affinity for the oceans
having spent my youthful days
diving  on Florida's coral reefs
and in later years serving in the
Navy.  I've always viewed the
oceans as the last great
frontier—as a source of
sustenance for a large part of the
world's population, as a reservoir
of ecological wealth and  enjoy-
ment and as a medium which
ties "nations together. The oceans
are also  vast, complex, and
mysterious to us and it is not
clear what the fate and effects of
pollutants in  the  oceans are.
   Notwithstanding the impor-
tance of the oceans as a resource
and the  uncertainty regarding
their ability to assimilate wastes,
I think the oceans should be con-
sidered as a  viable option for
waste  management, at least for
an interim period. Recent scien-
tific research supports this posi-
tion.
   The Agency has begun the
task of revising the regulations
which  control the dumping of
sludge into the ocean. In a
general sense I would like to see
two key  features in the regula-
tions. One, that a very  rigid en-
vironmental test  be established
for determination of those
sludges which are suitable for
ocean  disposal without causing
unreasonable degradation. Two,
that the burden of proof is  placed
on the polluter to show that
there will not be unreasonable
degradation of the marine en-
vironment and that all feasible
land-based alternatives are less
suitable  from  an  environmental
point  of view. I think the role of
economics in  such determina-
tions will become more impor-
tant where the environmental
risks of a land-based  alternative
versus an ocean  disposal  alter-
native  are equivalent.
    What does a regulatory
 agency do  when it cannot
 predict the fate and effects of
 pollutants in the ocean or  any
 other  medium?

    The environment does not
 lend itself to precise  predic-
 tability. This is true whether one
 is considering waste  disposal in
 the air, on land, or in the ocean.
 The answer to your question lies
 in science and in process. We get
 as much factual  data and  infor-
 mation as we can; we apply the
 most sophisticated analytical
 procedures and analysis that we
 have available to  us;  and we
 discuss and debate the facts  and
 hypotheses  in open public
 forums. Once having  made a
 decision we rely upon  monitoring
 and further  research to assure
 that adequate protection is  being
 provided.  Finally, we  review  the
 situation periodically and adjust
 decisions  according to the
 evidence using a similar process.
 Our various planning  and per-
 mitting tools serve this need to
 review past decisions.
   I believe that the EPA can do
 a better job in coordinating with
 other Federal, state, and local
 agencies in conducting research,
 and in developing analytical
 procedures and monitoring
 programs  which will reduce  the
 uncertainty with respect  to the
 fate and effects of pollutants in
 our waters,
   I like to think of pollutants as
 resources waiting  to be
 rediscovered. As we plan for  the
 management of our sludge,
 whether it is for ocean dumping
 or some land  disposal method,
 we should give equal if not
 greater attention  to resource
 recovery and reuse. I  am op-
timistic that as resources
 become more scarce, as cost ef-
fective technologies become
 available,  and as  the public
becomes more demanding  of
 reutilization  of resources, that
the focus  of the future will  be
 more on the  side of resource
recovery than it will be on waste
disposal. I am optimistic about
the future in this regard.


    Are any new steps needed
 at the Federal level to assure
 that Americans have a  safe
 supply of drinking water?
    A major objective of this ad-
ministration generally,  is to
delegate fully the  authority and
responsibility for the administra-
tion of various environmental
programs to the States where the
environmental  laws permit. The
Safe Drinking Water Act en-
visioned  a  primary role and
responsibility for States in  the
regulation  of public water  sup-
plies and controlling injection of
contaminants into ground water
aquifers. In keeping  with this
overall policy we will be working
very hard to fully delegate  these
responsibilities to state agencies.
   With respect to public water
supply systems, I believe that the
Agency should develop with
states strategies which are more
effective at anticipating and deal-
ing with the special problems
faced by the 62,000 rural  com-
munity systems. In the past,
EPA's attention and resources
have been  focused primarily on
the 2.000 or so major water sup-
ply systems. These urban
systems  provide potable water
for the vast majority of the
American people.  For the most
part they are professionally
managed and they are and will
continue to be subjected to
microscopic oversight by state
regulatory  agencies and their
customers.
   Groundwater is another  area
where  the  Agency should  focus
more of  its attention and
resources.  Old  timers have said
of the hardness of  the water that
comes from the well at my
Colorado homestead "you  can
scarce get  a bite  to  drink " My
personal concern with well water
is more a  matter  of aesthetics
and convenience,  but as the
Assistant Administrator for
Water, I cannot help but be con-
cerned with the existing and
potential future contamination of
ground water from a public
health point of view. Statistically,
greater than half  of  our popula-
tion receives its potable water
from the ground.
   Groundwater. once conta-
minated,  takes  years, if not de-
cades or centuries, to purify.
Groundwater protection is
fundamentally a land use issue.
State and  local governments by
far have  the  greater  powers to
make determinations concerning
siting of  facilities, designation of
underground  sources of water
supply and  the  like. States  also
 have extraordinary powers under
 their various health laws to  pre-
 vent and control  ground water
 pollution.  I believe that the EPA
 should work with the States in
 the continued development  of
 state ground water protection
 strategies.  Our principal focus
 should be  on assuring that  our
 regulations governing water
 supply systems, underground in-
 jection, dump sites and the like
 are well coordinated  and  that
 our enforcement posture supports
 state strategies concerning
 ground water  protection.


    Are water quality stan-
 dards still a useful  tool in
 protecting and enhancing  our
 water  ways?

 A Water quality standards are
 an important and logical next
 step to ensuring  adequate
 protection  of beneficial uses of
 water nationwide. The Clean
Water  Act envisioned  that
 technology based standards
 would  be  set as a floor below
 which municipal and  industrial
 dischargers could not go.  The
 Agency is  committed to getting
 into  effect  as soon as possible
 regulations governing the control
 of toxic substances from in-
dustrial dischargers.  Even  with
 these regulations in  effect, and
 technologies in place,  the ques-
 tion  remains: is there  adequate
 protection of beneficial uses and
 water quality? The answer will lie
 in the strength of a state's water
 quality standards program.
  There is a major effort  un-
 derway currently  to upgrade the
 quality of  EPA's guidance con-
 cerning the states' adoption and
 implementation of water quality
 standards.
  The standards regulations
 which  EPA will be proposing
 stress the  designation of
 beneficial  uses and numeric
 criteria sufficient to protect those
 uses on a  site specific base.  The
 regulations will also propose a
 policy of protection of uses
 currently attained with no
 allowance  for degradation of
 those uses.
  I am sure some States will be
 concerned  with the resource im-
 plications  of revising their stan-
dards along these lines, but I am
convinced that the regulated
community will be more than
MARCH/APRIL 1982
                                                                                             11

-------
willing to bear their fair share of
the burden of developing
monitoring data, analysis, and in-
formation  necessary to  revise
standards as  it is in their self in-
terest to do so.  No elected of-
ficial or industry principal wants
to make an investment  m pollu-
tion control unless it is well foun-
ded in scientific bases and has
public support  To help  avoid
some of the confusion and mis-
conception that  has  grown over
the years regarding water quality
standards,  the EPA is trying  to
focus attention on five basic
questions which we believe cap-
ture the essence of the standards
setting process. These questions
are: What  is  the use to be
protected  and how is it charac-
terized m physical, chemical and
biological terms and in terms of
social and  economic value? To
what  extent does pollution im-
pair or support the use relative to
other factors? What level of point
source pollution contro! is
necessary to  restore and protect
the use? What level  of nonpoint
source pollution control is feasi-
ble that will restore  and protect
the use? Is it worth it?
   This  last question should be
taken in light of a policy  of an-
tidegradation but it is an impor
tant question to ask when con-
sidering the costs and benefits of
pollution control technology that
may be required  to meet water
quality standards in  the future.
     In your judgment are
America's waterways getting
cleaner, holding their own, or
deteriorating?

     The only  honest answer to
that question  is that I  don't
know  Surely its a mixed bag and
I  would prefer not to bore your
readers with the same worn out
horror stories and success stories
that have been  printed and
reprinted  so many times over.
The fact of the matter is, environ-
mental trends are subtle except
in the rare instances of overt
signs of pollution such as  fish
kills. I  don't  think the answer lies
necessarily in  collecting more in-
formation. EPA's water programs
currently  place approximately
3.9 million work hours of burden
on  the regulated community and
state and local governments to
collect information. I think the
answer to the question lies in
how the data  is used and  who
uses it. I see three ways in which
we can do a better job of deter-
mining environmental results or
trends in environmental quality.
First, assert the need for states to
take a stronger role in  assessing
improvements in water quality.
This will  be a  clear reversal of
past trends where EPA has
always assumed that it was the
appropriate institution  to make
such determinations. Secondly,
the focus of analyzing  environ-
mental trends and results should
be on specific media on  a
geographic basis. States should
review their long term monitor-
ing data  and develop qualitative
assessments which address the
physical, chemical  and  biological
characteristics of the aquatic en-
vironment, the uses made of it
and any  pollution events or oc-
currences which have  been ob-
served.
   The third approach, which  is
less satisfactory from a scientific
point of view,  is to use surrogate
measures. For example, knowing
that we  have reduced  the dis-
charge measured in  pounds of
pollutants  in a particular water
body over a particular period  of
time, is an indicator of  the effec-
tiveness  of pollution control re-
quirements, whereas counting
the number of violations of
NPDES discharge permits does
not relate  at all to the environ-
mental consequences  of pollu-
tant loadings.
     What are your views on
 local government  and water
 quality management planning?

     I  have a very strong orienta-
 tion toward local government as
 a result of my past experience as
 a health department official, local
 planner and a consultant to local
 government and industry. Let me
 answer that question by first be-
 ing very frank about local govern-
 ment  involvement  in water
 quality planning under  section
 208 of the Clean Water Act and
 one reason why this Administra-
 tion has not shown support  for
 continual Federal funding  of
 areawide agencies  to carry out
 planning. Lack of implementation
 of water  quality management
 plans in my view is  a direct result
 of the inability of the  planning
agency to adequately define the
problem. This  inability was due
either to the agency's un-
questioned acceptance of a
problem  statement  made by a
state or federal agency or  from
having taken a one dimensional
approach at defining  the
problem.
   On the flip  side of the coin
there have been numerous local
success stories
   In vtew  of the lack of
familiarity with the  Clean Water
Act at  the  start of planning and
the lack  of focus in  EPA's
guidance as to what  should be
planned for, local governments
have made substantial gains.
   I think we should look ahead
at water quality management
planning in terms of a new
phase:  one  in which the plan-
ning under Federal  grants is
highly focused on specific
streams or lakes which are con-
sidered  to  be the most valuable
and those  that are  most
threatened from pollution.  Local
governments have an oppor-
tunity for additional funding un-
der the Clean Water Act to  carry
out planning provided  they can
make the case to the state pollu-
tion control agency that they are
better equipped  to conduct the
necessary studies.
   On a more philosophical  level,
section 208 of the Clean Water
Act provides a  very  important
handle for  local  governments to
join together on a voluntary  basis
to develop the  institutional and
technical capacity to deal eyeball
to eyeball with the  regulatory
agencies. This local role is essen-
tial as  we  move into an era of
reassessing our water quality
goals in the context of revisions
to state water quality standards.
   I am confident that many local
planning  organizations will  con-
tinue to play a major role without
Federal  assistance.

r\
     Do you see a change in
emphasis on management of
the construction grants
program for publicly owned
treatment  works as a result of
the 1981 amendments?

    Yes. A new construction
grants  bill contained two very
significant  messages from  my
point of view as a former local
government official. First, that
Federal  grant funds are to  be
targeted to restoring and  main-
taining water quality and
designated beneficial uses of
water.  Secondly, that local
governments are to assume a
greater responsibility for assuring
that they have  the requisite
financial and management
capability  to construct, operate
and maintain waste treatment
facilities.
   Many of the horror stories that
you have heard of regarding the
high cost of wastewater service I
believe are attributable to a lack
of attention given  to the details
of how a community is  going to
implement its capital improve-
ments  program  from the financial
management point of view. This
in turn is  an outgrowth of the
large federal grant share and
over-corn plica ted. regulations.
   The construction grants
regulations reflecting the  new
amendments are being  revised
and shortened  to reflect more
clearly the statutory require-
ments  set forth in the  bill. One
new emphasis that will be  placed
in these regulations will be the
requirement that the grantee
demonstrate its ability to finance
and manage  the construction,
operation  and maintenance of
treatment facilities funded under
this program.
   I believe that this is not only a
principle of good local
government—to plan in advance
of a  major capital  investment—
but also necessary to assure that
the Federal investment  in such
facilities  is protected. D
                                                                                                                  EPA JOURNAL

-------
                                                                River Basin as seen from Cnmf-
Better  Days
for the
Charles  River
"It is f> fact that the Charles River serves
its people  in many  ways   a  drop to
drink. ;i fish  to fry.  n teach to row.
Beyond all of these, though,  it brings
     ; ;/ hn.iuty and refreshment find
vf)ft/fi to our /ives. If for no other reason, it
is worth caring for."
The progress in improving the water quality
   in the historic Charles River which  mean-
ders for 80 miles  from  its source in rural
eastern  Massachusetts to its mouth at
Boston  Harbor is  a striking example of
cooperation between  local citizens and the
State  and Federal governments.
   A key role in forging this partnership was
played by the Charles River Watershed
Association, a citizen's group dedicated to
the river's protection  and  improvement. The
association also has been active in pushing
for action to correct environmental ills.
   As  a  result of these cooperative actions,
Rita Barron, association executive director,
reports;
   All  significant sources of untreated
sewage  discharges into  the Charles River
have been eliminated.
   Treatment of industrial discharges into the
river is required by National Pollutant  Dis-
charge Elimination System permits
   Operation  of municipal landfills on the
banks of the Charles  which once  spilled
pollution into the  river has ended.
   The Charles River  association has noted
that while "in some areas the water  is
seriously degraded anct  land use ugly . .
much  beauty does exist and more than the
skeptics will acknowledge. The treasure may
be tarnished, but it is no  less  a treasure."
   Commenting on the Charles River  im-
provement efforts,  Lester  A. Sutton, EPA
Region 1 Administrator, said:
   "The Charles River is one of our most im-
portant and historic  waterways. We have
placed a  high priority on its restoration
because of its  unique location as a major
recreation resource.  The Charles is a major
attraction of the Boston metropolitan area in
all seasons and deserves the significant  ef-
forts that local, state and  federal govern-
ments, as well as the Charles River
Watershed Association, have invested in
restoring  and preserving it."
   A major factor in  the improvement of  the
quality of river water in the Boston Harbor
area was the installation of compressor-
operated air diffusers on the basin bottom in
1 978 which help mix the fresh and salt layers
in  the river.
   Salt water seeps through locks and dams
into the Charles River Basin starting  in the
spring. Before the diffusers were put  in,  the
salt layer covered  the entire bottom of the
basin  by the end of  August.
   Because of its greater density, salt water
remained at the bottom of the river,  below
the fresh water flowing continuously into the
river from  upstream  areas.  As a result, the
Charles River Basin  was stratified with
horizontal layers of fresh water at the surface
and salt water  at the bottom.
   While  the fresh water layer contained an
ample supply of dissolved oxygen,  the bot-
tom layer was  a repository for decomposing
MARCH/APRIL 1982
                                                                              13

-------
                                            •
organic  material which consumed  oxygen.
The decomposition without oxygen produced
hydrogen sulfide. a compound which when
released as a gas smells like rotten  eggs.
   Rising air bubbles from the diffusers on
llu; bottom of the river now  act as pumps,
raising water from the bottom layer to  the
surface  for natural reoxygenation.  while
churning and mixing both layers. The bubbles
also add oxygen  to the water
   Now. on pleasant days, canoes, sail boats
and power craft can be seen on the  river.
Rowing competitions are frequently held on
the Charles River. Many universities, private
secondary schools, and boating clubs have
racing shells. The annual  Head-of-the-
Charles Regatta attracts hundreds of racers
who compete over a three-mile course in
shells of various  sizes.
   The wide variety of habitats along the
Charles include brush,  shrub, swamps.
hardwood groves, and open fields.  These at-
tract songbirds,  hawks, owls, ducks, geese.
warblers and ospreys, some of them full-time
residents and others migrants. An early
morning canoe trip in  May can be a bird
watcher's delight. The  diverse variety of
plants is enjoyed by naturalists and others.
White-tailed deer and  muskrats  are  often
seen in  the upper and middle reaches of the
river.
   Fishermen can catch trout in the upper
portions of the Charles, perch,  pickerel  and
bass in the middle stretch, and carp, suckers,
and pumpkinseeds in the Charles River Basin.
   Other major developments other than
those described earlier which have helped to
improve the conditions  of the river include:

•  New sewage treatment plants have been
built for several towns,  and  grant funds are
supporting Milford's  current expansion and
upgrading to advance treatment in that
critical reach of the  upper Charles.

•  Two chlorination/detention  centers were
built with federal assistance  to handle con-
taminated storm  water  and  sewage over-
flows in the lower Charles Basin.

•  The 208 watershed management study
has had the active cooperation of the Charles
River Watershed  Association. In fact, the
regional planning  agency subcontracted with
the association to conduct public participa-
tion programs around the state to provide the
public with accurate information  about the
project.

•  The Land and  Water Conservation Fund,
which is partially supported by the Depart-
ment of Interior,  helps  localities buy local
recreation land by reimbursing them for part
of the cost. This program has helped provide
the incentive to local communities to  buy
public lands  The Charles River Watershed
Association has  participated  actively in this
project.  It received a grant to prepare a
detailed greenway plan for a major segment
of the Charles River Corridor, and this project
has now been completed. The association
encourages communities to buy river front
lands and emphasizes the importance  of
shoreline protection and intelligent land use.

  "The Charles River Watershed Association
has achieved  many fine results, but its efforts
could not have succeeded without  the
cooperation and active assistance of the Divi-
sion of Water Pollution Control of the Com-
monwealth of Massachusetts." according  to
the association's  executive director,  Rita
Barron.
  A publication  issued by the Charles  River
Watershed association asks the question:
  "What's ahead for the people's river?"
  The answer given by the association
  "Much depends on the river's people.  In
every city and town in the watershed,  deci-
sions are being made that determine the
quality of the watershed environment.
Dramatic issues meet the public eye readily
enough, but few land use choices and few of-
ficial attitudes fail to be reflected in the well-
being of the  Charles. Perhaps no better op-
portunity exists to help the Charles than be-
ing part  of those local decisions." D
                                                                                                                  EPA JOURNAL

-------
                               Science
                               for  the   Future
                               An Interview with
                               Dr. Earnest F. Gloyna
                               Chairman,
                               EPA Science Advisory Board
                                    EPA Administrator Anne
                               M. Gorsuch is insisting  on bet-
                               ter scientific review to improve
                               the quality of the Agency's
                               regulatory decisions. What role
                               can the Science Advisory
                               Board play in improving EPA's
                               scientific work?

                                    We live in a technologically
                               oriented society.  Therefore, it is
                               imperative that the EPA
                               decision-making process in-
                               cludes a serious scientific review
                               procedure. Regulatory controls
                               must be based upon  proven
                               scientific concepts, adaptable
                               technology and achievable goals.
                                 This administration  has
                               recently established a  new
                               process  for improving the scien-
                               tific adequacy of agency
                               regulatory and standard  setting
                               actions.  Numerous examples ex-
                               ist in which the scientific  basis of
                               the agency's decisions has been
                               challenged by individuals or
                               groups who have  charged that
                               either the scientific evidence did
not justify a particular standard
level or that the process of
agency review did not ade-
quately address public concerns
over the quality of the data used
in  standard setting.
   Administrator Gorsuch  has
noted that the consequences of
such challenges are  that the
agency's  credibility has suffered
a serious erosion and the public
is  far less inclined to regard
agency action  as balanced and
objective.
   To help remedy this problem
the Science Advisory Board has
been given a  significant role in
reviewing scientific data sup-
porting key regulatory actions
being developed by  EPA.
     Drawing on your ex-
perience as a college dean and
your extensive work as a
researcher and engineer,  how
do you think the Agency can
receive the best results from
research dollars invested?

     The level of scientific and
technological input that can be
brought to bear in a decision-
making  process ultimately de-
pends upon the research accom-
plishments within a given area.
The responsibilities of the En-
vironmental  Protection Agency
are unique in that not only must
there be a scientific basis for
pollution control  applications,
but new methodologies must be
developed for the future. Conse-
quently, research  is of utmost
importance.
   For research to be useful
within the decision-making
process of the EPA, it is  logical
that the  research  be directed to
resolving the longer-range objec-
tives of the  agency, A large
potential pool  of available
researchers exists within  the
national laboratories, academic
community and industrial
research complexes. For most ef-
fective utilization  of these com-
bined talents, it appears that
there should be a  judicious deci-
sion by  government to  use the
best of  all available human
resources and  nurture these
pools  of expertise. Certainly,  if
academic research is abandoned,
the seed com for future research
competence will  disappear


     Do you see any conflicts
between EPA's sponsorship of
research and its  respon-
sibilities as  a  regulatory
agency?

     As EPA's role as a
regulatory agency  becomes more
defined, the  need  for additional
scientific input and tech-
nological innovation will become
more pronounced. Regulations
concerning environmental ques-
MARCH/APRIL 1982
                                                                                                                         15

-------
V    -
                            \
                             '.  -


-------
tions must have a sound scien-
tific basis.  Regulations that im-
pact upon  the future cannot be
clearly developed nor understood
without an ongoing research
component and readily un-
derstood technological im-
plementation program.


\Ji  How can the quality of
undergraduate and graduate
school engineering students
and faculties, particularly those
working on environmental
issues,  be maintained and  im-
proved?

f\  A former Committee, of
the National Research Council  of
the National  Academy of
Sciences which I  chaired, found
that there  were four reasons for
special  concern with environ-
mental  manpower. These are

•  time  schedules  and  specific
goals that  are imposed by en-
vironmental legislation;

•  specific  directions in environ-
mental  legislation  which call  for
federal  study of the  appropriate
labor markets and stimulation of
manpower development  in cer-
tain  occupations;

•  high levels and patterns of ex-
penditures that are anticipated  in
achieving environmental  goals;
and

•  the fact that environmental
pollution control programs are
highly  reliant on the public
sector.
   The Committee
concluded that a large-scale
shortage of  pollution control
manpower was not apparent nor
was a shortage likely to develop
in  the near future. However,
shortages will occur  in selected
and highly specialized environ-
mental engineering and science
areas. The true environmental
manpower problem  will not oc-
cur because of an inadequate
number of bodies but because
the educational level  of  people
available to work effectively just
will not be up to the task.
   Let there  be no mistake about
the fact that the flow of top-level
graduate students into environ-
mental programs has declined
because  the competition for
undergraduate engineers by em-
ployers continues to  withdraw
some  of  the most talented from
graduate studies. The
professional  leadership, research
and the teaching pools  are at a
critical level.

   A major newspaper
commented;

   "It is beginning to be  seen in
official Washington  that  the
United States has absent-
mindedly permitted  decay to
seep into the system for  training
the "engineers"  who are
indispensable  to an ambitious,
high-technology  problem-laden
society.


(_i  What is the relationship
between scientifically ade-
quate  regulations and  cost-
effective regulations?

f\  Scientific adequacy,
technical  feasibility and cost  ef-
fectiveness are terms that really
should convey the same ultimate
meaning in environmental  pollu-
tion control. However, some peo-
ple sometimes forget that there
are judgmental factors that must
enter  the decision-making
process, and even such terms as
scientific adequacy may convey
some grey areas of
understanding.


 V-i  What is your view of
EPA's peer review  process?

 r\  The Executive Committee of
the Science Advisory Board
reviewed the Administration's
peer review process when it was
in draft form.  The board believes
this process represents a reason-
able compromise between con-
cerns over the scientific quality
of EPA  contracts, publications,
and informational materials and
the need for the dissemination
of data among interested  pro-
fessionals and the general public.
     What issues will the
Science Advisory Board review
in 19827


f\  High level radioactive waste
disposal standards, national am-
bient standards for sulphur diox-
ide and particulates,  national
emission standards for hazar-
dous air pollutants,  health
assessment for organic solvents,
exposure assessment guidelines,
research outlook, effluent
guidelines for organic chemicals,
critical assessment document for
acidic deposition, criteria for
sludge disposal, and  maximum
contaminant level for organics in
drinking water, D
MARCH/APRIL  1982
                                                                                                                             17

-------
                                     -
                 ,
Lake Trout:
A Bellwether
for the
Great Lakes

              •Hlllt
                                   , /-
                                     f *
                                •V ~ . • ' f
                               .
                                       - V
                                              -'
                                  '



                                             :

18
EPA JOURNAL

-------
IV] illions of young lake trout are again being
    slocked in the Great Lakes this spring as
part of a  long-range effort to restore this
native species to a self-sustaining fishery of
great commercial and recreational value
   The stocking of these fish is being done by
the U.S. Fish  and Wildlife Service in coopera-
tion  with  State  and Canadian conservation
agencies as part of an experimental  process
which could  have extraordinary conse-
quences.
   While many factors could be involved  in
the fate of these young fish, their future will.
to some degree, provide a significant  in-
dicator of  the quality of water in the Great
Lakes.
   A  recent U.S  Fish and  Wildlife Service
report noted  that the lake  trout species "is
becoming widely respected and accepted as
a symbol of ecoystem well-being—at once a
bellwether of improvement, a 'miner's
canary' to  warn of new threats, and an in-
dicator of  conditions  generally."
   The  population of the lake trout which
swam in the Great Lakes  was once in the
millions. However, this  resource crashed  in
the late 1940s and early 1950s after it had
supported  a  highly profitable commercial
fishery  industry  for almost a century.
   The  factors which caused the collapse  of
this fishery, according to the Fish and Wildlife
Service, were:

•  Overfishing, greatly aggravated by the de-
mand for  more  food during World War II.

•  Heavy predation by the  parasite sea
lamprey.

•  Deteriorating  water quality in the Great
Lakes.

   In  order to deal with these problems the
United  States and Canada  formed the Great
Lakes Fishery Commission in 1956  which.
with  funds from  both governments,  un-
derwrites  control of the sea  lamprey, coor-
dinates fishery research and management,
               •nartment of Environmental ;
               Ontario as  pan of ,i stockir\<
and promotes rehabilitation of damaged fish
resources like the  lake trout
   The commission has brought the sea lam-
prey under control primarily with the use of
chemical lampricrdes and is now stimulating
the rehabilitation  of various species of fish
such as the lake trout.
   A serious  problem  still being fought  by
EPA and the Great Lakes states is  toxics
pollution The state departments of natural
resources or state public health departments
for Michigan, Indiana, Wisconsin, Illinois, and
New York have issued health advisories for
people who  eat Great Lakes fish. Each state
has specific recommendations as to species
to be concerned with (all include salmon and
lake trout) and size categories (the larger fish
contain  higher contaminant levels). Each of
these states ts concerned about PCB pollu-
tion and the New York advisory for Lake On-
tario also warns against eating any lake trout
over  21  inches in length because of a mirex
contamination problem. While the U.S. Food
and Drug  Administration has the legal
authority to regulate interstate sale and dis-
tribution of commercial fish,  it is the states
which issue advisories for sports fishermen.
MARCH/APRIL 1982
                                                                                                                              19

-------
                                                                                                     •>i/ii
                                                                                       ,7 Us ft.
                                                                                                                   pip feecitng on
                                                                                                      was evidence of the plentiful
                                                                                       supply of large lake trout fishermen used to
                                                                                                     Great Lakes.


                                                                                       Right Younci lake trout being placed in Lake
                                                                                       (Vlichi
  The lake trout, which spawn in the lakes
rather than traveling up a tributary stream
like many other fish, thrive best in the three
upper Great Lakes which  have deeper and
colder water than the shallower and warmer
Lake Erie and Lake Ontario. These  silvery fish
are  avidly sought by spoft  fishermen and the
average catch weighs between three and six
pounds
  While efforts to improve  the lake trout
populations  have been underway for many
years in the Great Lakes, it was not until last
fall  that the U.S. Fish  and Wildlife Service
found conditions  sufficiently encouraging to
warrant reaffirming the concept of restoring
the lake trout  population as  a self-sustaining
resource
  The Service stated that "the feasibility of a
restored, self-sustaining lake trout resource
in the Great  Lakes was viewed with some
skepticism when lake trout stocking began in
earnest 20 years ago. More than a little
doubt prevailed then  about  the ability of
stocked trout, and even more so of their
possible offspring, to endure a degraded en-
vironment.
   "In recent years, however, suppression of
the lamprey and  improvement  in habitat
quality have considerably brightened
prospects for lake trout restoration.
Biological research and environmental
monitoring have  also convinced many that
trout restoration deserves renewed attention
as a valid concept, and that the goal of a self-
sustaining resource in a rejuvenated environ-
ment is not only achievable, but economically
desirable as well . . . the lake trout, apart from
its  well-established economic value, is
perhaps the species most capable of fully
tapping the productive potential of the Great
Lakes because  of its superior adaptability to
available habitat.
   "Recognizing the great potential of the
lake trout as a food source and of the lakes to
again produce it in volume for the benefit of
all, the Fish and Wildlife  Service accordingly
reaffirms its belief that restoration of this
native species to self-sustainability in the
Great Lakes remains a vital, attainable goal
with considerable social and economic
merit,"
   At the same time, the Service emphasized
that unrelenting efforts must be continued to
curb the population of the parastic sea lam-
prey and to restore  and enhance the quality
of the waters of the Great Lakes.
   "Evolving Service participation with the
U.S. Environmental  Protection Agency (EPA)
and other agencies in  water quality sur-
veillance . . .  must therefore continue to be
supported if not accelerated.
   "For  without a basis by which to gauge
water quality and the effectiveness  of pollu-
tion abatement programs now underway, the
goal of  reestablishing stocks of environmen-
tally sensitive fishes could be pursued unwit-
tingly as a futile, waste exercise."
   Since the late  1950s, approximately 100
million young trout, generally 10-  to  15-
month-old  fish, have been  planted  in the
20
                                                                       EPA JOURNAL

-------
Great Lakes, primarily in the three upper
lakes. Superior,  Michigan, and  Huron. Most
of these fish have been provided by Federal
fish hatcheries.
   The Fish and Wildlife Service has said that
"there is reasonable expectation that, given
the chance, these fish would survive to
maturity and accumulate in numbers even-
tually sufficient  to sustain the species' own
regeneration throughout most of the lakes."
   Yet, the Service notes, the goal of self-
sustainability is  elusive.
   "Several  factors, most notably  environ-
mental and genetic, are properly viewed with
suspicion  as impeding reestabtishment. Of
progeny that may be produced in the wild by
the sparse brookstocks so far created, few if
any seem able to survive their first year.
   "No factor would seem to  be as per-
vasively suspect, however, as that of the
planted trout's widespread, rapid, excessive.
and premature withdrawal by fishing. Of  the
planted trout that otherwise prosper, dis-
tressingly few survive for long the obviously
too-high fishing pressure to which they are
subjected in  many areas during their pre-
adult years and early adulthood "
   Since lake trout do not generally begin to
breed until they are seven years old, the high
mortality rate in their youth prevents the
development of adequate broodstocks.
   The Service has pointed to "premature
and  excessive" catches of the stocked trout
as "the  major obstacle to the species' poten-
tial reestablishment as a  self-sustaining
resource."
   While Federal hatcheries can continue to
produce millions of young lake trout, the Fish
and Wildlife Service has noted that once the
fish are  planted in the lakes, they become the
trust  responsibility of the State  or other
jurisdiction into whose waters they are
placed.
   Since the  Federal agency  has little
regulatory authority,  it  has urged the States
and  other agencies with jurisdiction to at-
tempt to curb the over-fishing which it con-
tends has played the major role in frustrating
attainment of the  goal of developing trout
stocks which can  regenerate the species.
   In addition to tighter fishing controls, the
fate of the lake trout will also depend heavily
on continued stocking programs, progress in
sea lamprey control, and improvement in cur-
bing the discharge of toxic substances and
other pollutants  into the Great Lakes.
   Because of the  magnitude and enormous
cost of coping with these problems, the com-
plexity of jurisdictional controls, and the long
time required for these fish to breed, the Fish
and Wildlife  Service does  not expect any
swift successes.
   Even under the  best of circumstances, the
Fish and Wildlife Service  believes it will be
another 1 0 to 15 years before lake trout will
be breeding again  in large numbers in many
areas of the  Great Lakes.  D
MARCH/APRIL 1982
                                                                                                                               21

-------
The   Super-fund
Contingency
Plan  To  Help
Clean   Up   Sites
                                                                  nitecJor.  •         .  -,k l't>n:t! on Hi:t/n!,t!t>ty
                                           •'A Administrator Anne M Gorsuch tit pi           e niinattncriii/ the n.it/on.
                                               Irtn.
                                      EPA is proposing, in the Superfund National
                                      Contingency Plan, guidelines for coordinating
                                      federal and state responses to hazardous
                                      substance spills and for cleaning up hazar-
                                      dous waste sites. Administrator Anne  M.
                                      Gorsuch  recently announced the proposed
                                      national guidelines for cleaning  up wastes.
                                        In December 1980, Congress passed  the
                                      Comprehensive Environmental Response,
                                      Compensation, and Liability Act authorizing
                                      federal action in cleaning  up older, aban-
                                      doned dumps.  (Four years  earlier, the
                                      Resource Conservation and Recovery Act
                                      had already authorized federal  regulation of
                                      still-operating dumps.) The 1980 law—
                                      known as Superfund because of its unwieldy
                                      official title—required EPA to develop a new
                                      National  Contingency Plan.
  The Superfund law itself outlines federal
responsibilities forresponse to spills of hazar-
dous substances and for cleanup of aban-
doned hazardous waste sites. It sets up a $1.6
billion trust fund over five years, consisting of
taxes on the manufacture of certain
chemicals and general revenues appropriated
by Congress.
  "Safe and effective toxic waste manage-
ment is one of the  primary environmental
goals of this Administration," said Mrs. Gor-
such. "This plan reflects our commitment.
  "The NCP, which outlines government
response to the difficult problem of hazar-
dous waste cleanup, exemplifies regulatory
reform in  the Reagan  Administration. Its
provisions are concise, its language non-
technical,  and its requirements flexible," said
Mrs.  Gorsuch.
  Christopher DeMuth. Executive Director,
Presidential Task Force on Regulatory Relief,
said,  "In the 14 months since President
Reagan was inaugurated, this Administration
                                                                                                   EPA JOURNAL

-------
has been  striving—successfully, I believe—
to make government more responsive and ef-
ficient. Our main means of accomplishing
this is through regulatory reform Today's
proposed NCR proves that federal regulations
need  not be cumbersome or costly."
   The new plan authorizes  response to
waste sites and oil spills  on  air, land,  and
water. This includes responding to explosions
or fires, massive releases  of toxic chemicals
into streams or  rivers,  and spills caused  by
train derailments.
   tn conjunction with the plan, EPA is com-
piling  a national inventory of state-selected
hazardous waste sites. The agency will select
400 priority sites for possible action. The first
1 1 5 of these sites were announced last Oc-
tober.
   The proposed National Contingency Plan
sets criteria  for determining where, when,
and how Superfund monies will  be spent. It
describes  two categories  of cleanup:  im-
mediate removal in response to acute
emergencies, and  more limited,  planned
removal in response to  less serious threats It
also sets up an eight-step process for deter-
mining the extent of cleanup, beginning with
a determination of  whether or not a site is on
EPA's inventory and thus eligible for remedial
action. Sites are "scoped" to see what action
is needed. Then alternatives  based on en-
vironmental, economic, and  engineering
criteria are developed.
   The final  remedy will be the  most cost-
effective that protects public health, welfare,
and the environment.
   The Plan  allows for extensive state and
local participation in cleanup activities by giv-
ing States the necessary  guidance and
authority to manage their own site cleanups.
   EPA is planning to  use both  cooperative
agreements and contracts to allow the states
to assume as  much  responsibility for field
response as they are capatle of  undertaking
and are willing to accept. EPA estimates that
in 1983 some  $34 million will be transferred
to the states for field  activities.
   The National Contingency Plan recognizes
that cleanup needs vary significantly from
site to site.  "On one site, drums  may be
removed, the surface  scaled, graded and
revegetated. In another, a system may be
built for trapping and  treating leachate so
that pollutants do  not  escape the site. We
have learned that  every feasible alternative
must be examined  to see if it can  be tailored
to the unique problems of the particular site.
The remedy will depend  on  many variables
such as the substances present, hydro-
geology, soil conditions, climate,  size and
proximity of population," said Mrs. Gorsuch.
   "Superfund was intended by Congress to
be a non-regulatory, non-standard setting
law—because the  Congress realized, as we
all realize, that cleanup of these sites is very
new. There are no easy answers to the issues
confronting  us. In  some cases, we may be
asking for answers which the state of the art
or science are not yet  ready to provide. We
must ensure that the  state of the art and
science  are  given  the maximum amount  of
flexibility in which  to give us these answers.
We can find  the answers by initiating an
aggressive cleanup program—and by learn-
ing and refining as we gain experience. In this
regard, I am confident that the National Con-
tingency Plan can be used to usher in a new
era of environmental technology and applica-
tion
   "The  Reagan Administration believes that
a policy of straightforward regulation and
careful resource management, combined
with an unshakable  environmental commit-
ment, is our  mandate from  the American
people. And I believe that this policy will
result in a swift cleanup of existing environ-
mental hazards. Waste site  cleanup will  be
our environmental  legacy  to  future
generations."  D
MARCH/APRIL 1982
                                                                                                                              23

-------

Appointments
and  Awards
A Presidential appointment for an EPA
assistant administrator post and selections
for three key EPA jobs were announced
recently.
  President Reagan appointed Rita M.
Lavelle to be assistant administrator for solid
waste and emergency response.  She will
direct the hazardous waste control  program
and the $1.6 billion "Superfund" program
which provides for  emergency cleanup of
chemical spills and  hazardous waste dumps.
  Named  by EPA Administrator Anne M.
Gorsuch as Associate Administrator for Legal
Counsel and Enforcement was Robert M.
Perry, who had been serving as the  agency's
general  counsel.
  Appointed by EPA Administrator Anne M.
Gorsuch as Regional Administrator for EPA's
Region 2 Office in  New York City was Jac-
queline E. Schafer, a former professional staff
member of the U.S. Senate Committee on
Environment and Public Works and former
legislative  assistant to U.S. Sen. James  L.
Buckley of  New York
  Named  by Administrator Gorsuch as
director of the Office of Intergovernmental
Liaison was  Brad Gates, a  former member of
the  New Mexico Legislature.
  Selected by Administrator Gorsuch  as
EPA's new chief administrative law judge
was Edward B. Finch, who has been acting in
this capacity since November, 1981, and has
been an administrative law judge with the
agency since September,  1975.
  Meanwhile, Heather Mackey Ford, a civil
engineer with EPA's Region 4 Office in
Atlanta, has been recognized by the National
Society of Professional  Engineers as one of
the  federal government's  top engineers.
  Commenting  on the appointment of
Lavelle, Administrator Gorsuch said:
  "Rita  Lavelle  brings over  12 years of
professional experience in state government
and private industry to the agency," said EPA
Administrator Gorsuch. "She has
demonstrated expertise in getting results, as
shown by her record with the executive
branch of government in California, with a
mid-sized chemical firm and with  a large
diversified  international corporation." Lavelle
will direct all EPA's work on hazardous  and
other solid  wastes.
   Since 1 978, Lavelle has initiated, directed
and managed several programs for Aerojet-
General  Corporation  subsidiaries, including
ones for divisions which  manufacture
chemicals and industrial and chemical inter-
mediates, nuclear and chemical waste treat-
ment systems, liquid rocket  engines for the
aerospace  industry, and high-speed marine
propulsion systems for defense applications.
   Lavelle, 34, earned her bachelor's degree
in biology and mathematics,  with a minor in
chemistry, from  College of Holy Names,
Oakland. Calif,,  in 1969  and continued
graduate work at the University of California
at Berkeley in physiological  chemistry and
stoichiometry (the study  of biological cell
shapes and functions). She earned a master's
degree cum laude in business administration
from Pepperdine University in Los Angeles in
1980.
   From  1969 to 1976,  she was the con-
sumer affairs  department information officer
with the State of California, state director of
consumer education, and publications assis-
tant in the office of then-Governor Reagan.
   She was director of marketing  for  Inter-
continental  and  Continental  Chemical Cor-
poration in Sacramento. Calif., from 1976 to
1978. Lavelle's  responsibilities included
development of  corporate guidelines to com-
ply  with the Resource Conservation and
Recovery Act. At EPA. one of her  tasks will
be to administer nationwide compliance with
this law by both business and government
sectors.
 ,'4
                                                                                                            EPA JOURNAL

-------

                                           Schafer
                                          Gates
   When Lavelle joined Aerojet-General Cor-
poration, she became director of communica-
tions for one subsidiary,  Cordova Chemical
Co, until  1979, moving  to a similar com-
munications position for  the  largest sub-
sidiary,  Aeroiet Liquid  Rocket Co.. in  1979
   She is  a  member of several professional
organizations, including the American
Chemical  Society,  the American Institute of
Chemical  Engineers and the California  Coun-
cil for Environmental and Economic Balance,
as well  as numerous aerospace and defense
organizations. In 1981, she was named one
of the outstanding women in aerospace  by
Aerospace Magazine

   Commenting on the appointment of Perry
as Associate Administrator for Legal Counsel
and  Enforcement,  Mrs. Gorsuch  said "the
position of Associate Administrator for Legal
and  Enforcement Counsel was created to
bring together all of the legal functions within
the agency. A better job can be done with
fewer resources by integrating our legal shop
and  eliminating duplication.  Bob Perry is a
lawyer's lawyer, who will ensure that top
legal and policy |udgment is applied to strong
enforcement and legal programs."
   Perry, 46, served as a  trial  attorney in the
Land and  Natural  Resources  Division  of the
Department of Justice from  1964  to  1969
Between  1961 and 1964, he was on  active
duty in  the  Office  of the Judge  Advocate
General, U.S.  Army  Perry currently serves
that office as lieutenant  colonel  in the U S.
Army Reserves
   From 1  969 to 1981, Perry  worked as trial
counsel for  Exxon  Corp
   Perry received his master  of law degree
from Georgetown  Univeristy  in 1961. He
earned his J D. degree and bachelor of arts in
history in  1 959 from St. Mary's University in
San Antonio, Texas, his  hometown.
   Explaining the selection of Schafer, as the
new regional administrator in New York, Ad-
ministrator Gorsuch said:
   "Jackee Schafer has a  thorough  un-
derstanding of the complex laws under which
EPA operates. She also has a broad
knowledge of the  special problems  of  the
New York and New Jersey  area, thanks to
her experience with Senator  Buckley, EPA is
fortunate to have such a highly qualified per-
son to take over one of the agency's  most
challenging regional assignments."
   Mrs. Gorsuch also paid tribute to Richard
T. Dewling.  who has served as acting
regional administrator in  Region 2 for  the
past year, "The solid work of professionals
like Dick Dewling  and  his staff makes  it
possible for Jackee Schafer  to step into a
region that is already functioning in an effec-
tive, efficient and responsible manner I know
Jackee will be able to  count on continuing
support  from the regional  staff."
   Before  Senator  Buckley's  election in
1970. Schafer worked on his campaign and
handled all environmental  issues for him
From 1967 to 1970. she was an analyst in
the banking studies department and a
research  assistant  in the  research depart-
ment of the Federal Reserve Bank of  New
York.
   In recent years, Schafer has worked exten-
sively in  Republican organizations.  She
researched environment and energy issues
for the Reagan/Bush campaign, prepared a
transition report on the Council on Environ
mental Quality for the Executive Office of the
President, and served on the Arlington
County,  Va., Republican Committee
  A native of Greenport, N.Y., Schafer  holds
an A.B  in Economics  from Middlebury
College, Middlebury, Vt.
   Gates, the new director of the Office of
Intergovernmental Liaison, recently resigned
while serving his fourth term in the  New
Mexico Legislature to take the EPA position
He was vice chairman of the House Judiciary
Committee and a member of the Education
Committee.  Active in national legislative
matters, he is on the board of directors of the
American Legislative Exchange Council and a
member of the Law and Justice Committee
of the National Conference of State
Legislatures.
   In addition to his legislative duties. Gates
has been an Albuquerque lawyer since 1 975
He served as staff attorney for Ranchers Ex-
ploration and Development Corp . a  New
Mexico mining company, from June 1979 to
December 1980
   After leaving  Ranchers. Gates was a
Reagan delegate to the Republican National
Convention and  a member of the Reagan-
Bush Campaign staff In the past year, Gates
has spent  extensive tune  in Washington on
various projects, including  serving as  a con-
sultant to  the  EPA Administrator
   "Brad brings a unique  combination of
legal,  natural resources, and inter-
governmental experience to EPA's top
management team." said Administrator Gor-
such in announcing the appointment "EPA is
fortunate to have such a highly qualified per-
son as its intergovernmental liaison at a time
when  state and  local  governments will be
assuming greater responsibility  for ad-
ministering federal environmental programs,"
   As  Director of Intergovernmental Liaison,
Gates will  supervise a staff of  10 and coor-
dinate  all state and local government  liaison
by the agency and with the White House
There are  also 50 intergovernmental  liaison
employees working  in the 10 EPA regional
offices.
   In addition to his duties as IGL Director,
Gates will  serve as  a  counsel to the  Ad-
ministrator.
MARCH/APRIL  1982
                                                                                 25

-------


   Gates received his bachelor's degree in
business management from  New  Mexico
State University in Las Cruces, N.M..  in
1972 After attending the University of
Arkansas law school in Fayetteville,  Ark .  he
received his law degree  from the  University
of New Mexico in Albuquerque in 1975.

   As chief adminstrative law judge. Finch
will head a team of law judges who are
responsible for  conducting administrative
hearings requested by parties against whom
the agency has brought legal action under
environmental laws. The judges, like all ad-
ministrative law judges for federal agencies,
work independently of the agency to ensure
the fair and impartial  adjudication of cases
over which they preside.
   Finch, who has had  extensive experience
in  handling cases for the agency, most
recently presided over  the hearings on the
cancellation of the herbicide 2,4,5-T. The
hearings have been recessed and the  parties
are currently in settlement negotiations.
Finch also presided  over  the first case
brought under the Clean  Air Act to enforce
emission standards.  His decision resulted in
the 1978 recall by an automaker of approx-
imately  250,000 automobiles for the  repair
of  faulty emission devices.
   From 1973 to 1975,  Finch was with the
Consumer  Product Safety Commission.  He
began as director of compliance and was an
attorney-advisor to the  chairman of the Com-
mission prior to joining EPA.
   Finch was employed as an attorney with
the Federal Trade Commission in 1956  and
was assistant director  of its Bureau of Con-
sumer Protection when he left  in 1973.
   In  announcing Finch's appointment, Mrs.
Gorsuch also paid tribute to  Herbert  L.
Perlman who passed away in  October 1981,
while serving his tenth year as the agency's
chief administrative law  judge.
   "The agency certainly feels the loss of
such  a  dedicated professional as Herb
Perlman," Mrs. Gorsuch  said. "His legacy of
sound environmental decisionmakmg,
however, makes it possible for us to continue
in an effective and  responsible  manner. We
are indeed fortunate to have someone with
Ed Finch's experience  to fill this void."
   Finch served in the Navy from  1942 to
1 945 and graduated from Catholic University
School  of Law in 1954. He was admitted to
the D.C. Bar in 1955,  Shortly thereafter, he
was admitted to the bars of  both  the U.S.
Court of Appeals for the District of Columbia
Circuit and the Supreme  Court of the United
States
  Ms.  Ford, who won recognition as one of
the  federal government's top engineers,  has
worked in the hazardous waste program at
EPA's  regional office in  Atlanta,  Ga., since
1979
  She  was  responsible  for the technical
review  of the first hazardous waste treatment
and storage  facility to receive a permit in the
southeastern states. She also is  the  EPA
regional liaison with the Department of
Transportation, providing technical
assistance on  the shipment of hazardous
wastes. D
 26
                                                                     EPA JOURNAL

-------
                                                                                    •
                                                                                                  tf-V-

'.*•-
M issouri
Treatment  Plant
Wins
Recognition
Ann.ii wmv tit nationally recognis-,                                 •: City.  Mo.
 The National Society of Professional
   Engineers recently named a  pilot waste
treatment plant near  Kansas City, Mo., as
one of 1981's ten outstanding  engineering
achievements in the United States.
   EPA funded 85 percent of construction
costs for  the demonstration plant in the Little
Blue Valley Sewer District after finding that
the design by Burns & McDonnell Engineer-
ing Co., Inc., was  "innovative and alter-
native."
   The benefits of the design come primarily
from its simplicity. The system  is modular,
self-contained, operates independently and
has only three pieces of machinery with mov-
ing parts
   "The system permits small communities
and industries  to provide  simply operated,
economical treatment facilities which exceed
oxidation ponds in effluent quality on  sub-
stantially less land area," according to Burns
&  McDonnell. "We see not only domestic ap-
plications but international markets for such
an effective and simply run process.
   "It lets nature do the work machinery used
to do. Each module in  the system combines
the three step  process of conventional
biological wastewater treatment into one
basin. Much of the piping, pumps, tanks and
other equipment associated with conven-
tional treatment plants is eliminated. The
three moving parts in the Burns & McDonnell
design are a compressor,  a mixer and a
sludge wasting  pump."
  The demonstration plant has been in
operation for over a year. The  cleaned water
from the  plant meets or  exceeds all United
States federal and state government se-
condary effluent requirements, according to
Burns &  McDonnell.
  Data from the demonstration plant in-
dicates the design can reduce capital costs
for new wastewater treatment facilities by as
much as  60  percent from those of conven-
tional biological-treatment facilities and
lower operating costs by as much as 45  per-
cent.
  The Little Blue Valley Sewer District plans
to build four ten million gallons per day
modules beginning in 1982. Total treatment
capacity will then be 40 million gallons a  day,
enough to clean the water for the 358.000
residents  of Jackson and Cass Counties, in
the  State of  Missouri
  The des'gn also makes a municipality eligi-
ble for an 85 percent rather than the 75  per-
cent currently allowed for conventional
wastewater treatment systems
  "As wastewater enters the oval-shaped
basin in the demonstration plant, air is injec-
ted  into it," explained Cerwick.  "Next, the
aerated wastewater flows around the oval
mixing with the microbiological culture in the
basin. As the liquid reaches the clarifier sec-
tion, the pressure of the  incoming
wastewater pushes clear effluent water
toward the surface and into a system of
drainage pipes. Solids settle back into the
wastewater under the clarifier by gravity, and
microbiological organisms assimilate these
wastes, too."
   "The  key element is the design  of the
intrachannel clarifier The clarifier, which
operates entirely without moving parts and
which Burns & McDonnell plans to patent, is
the system's heart."
   By eliminating much of the equipment
used in  conventional wastewater treatment,
the Burns &  McDonnell design used only a
fifth  to a half of the land area required for
other treatment systems.
   The system  also is nearly odor free
because the wastewater is  continually
aerated  and does not stagnate. Micro-
organisms which occur in  nature "eat" the
wastes and eliminate the need for chemicals
to treat  the sewage, the design company
reports
   Because the Burns & McDonnell design is
iTKMiukii  .i community oi industry with
seasonal changes in demand for wastewater
treatment could build  a sufficient number of
basins to meet  peak demand,  but then run
only  enough  modules to meet current de-
mand.
   "In the off-season,  the modularity of the
system allows  a resort community, for  in-
stance, to shut down most of the system and
greatly cut its operating costs," said Burns &
McDonnell.
   The simplicity of the system could also
make it  cost-effective for airports, power
plants, military installations and industrial
facilities that are located miles away from the
nearest  municipal sewer system.
   The economical design and  high effluent
water quality allow the user to process his
wastewater independently  and reuse the
wastewater directly into some industrial
processes, an  important factor in water
scarce regions.  D
MARCH/APRIL 1982
                                                                                                                       27

-------
Conference
on   Fire  Ants
                                                :r;to
                                                                                                             '•  ,*
                                                                                                     . -..-     • •»»>.
                                                     . »*#
                                                "'
                 -     --';.^,^
                                         n heavily infested ureas such its thts field then; may bti         is 50 fire ant tt)oun>.
                                         tern
                                         A  symposium on the issue of fire ants and
                                            their control will be convened by EPA
                                        and the U.S. Department of Agriculture June
                                        7-10 in  Atlanta. Ga. A recent application
                                        from the state of Mississippi to conditionally
                                        register an insecticide called Ferriamicide has
                                        prompted a fresh look at the fire ant problem
                                          The symposium will consider the full range
                                        of fire ant issues, including the resurgence of
                                        ants following treatment control techniques,
                                        the  benefits and risks of existing chemicals,
                                        new chemicals now being developed,
                                        and the potential for new management tech-
                                        niques. In addition to EPA and USDA. the
                                        symposium will include scientists and other
                                        experts from the public and private sector.
  "It has become clear to me that we cannot
evaluate the Ferriamicide application in isola-
tion from all the many issues surrounding the
control of the fire ant, which has  infested
nine southern states and Puerto Rico," said
Dr. John A. Todhunter, EPA's Assistant Ad-
ministrator for Pesticides and Toxic
Substances.
  "The control of fire ants has been difficult
for decades and  has raised  a number of
significant  scientific issues.  In  that light,  a
hasty decision to either grant or deny the ap-
plication of Mississippi would  be  inap-
propriate at this  time,"  he added.
 28
                                                                                                         EPA JOURNAL

-------
   Over 230  million  acres in the  South are
now infested  with fire ants, including parts of
Mississippi, Arkansas, Texas. Alabama,
Florida. Georgia, Louisiana,  North  Carolina,
South  Carolina, and  Puerto  Rico, They are
currently spreading through  Texas at  about
25  miles per year
   Fire ants,  which were accidentally  in-
troduced into the United States from  South
America  in 1918,  are combative pests that
inflict painful stings  on  both people and
livestock. In some  cases, they cause serious
allergic reactions  to  those who are hyper-
sensitive. The fire  ant's  sting causes an  im-
mediate reaction of  white blisters
   The ants are about a quarter of an inch
long. They  are found not only in rural areas
but in  urban  back  yards, recreation areas,
parks,  and  cemeteries. They build mounds
which can reach 1 8 inches in height and 1 to
2 feet in diameter. The  mounds shelter
50,000 to 250,000 ants each. In heavily in-
fested  regions there  may  be as  many as
200 mounds  per acre.
   The mounds interfere with normal farming
operations, such as mowing and harvesting,
and discourage farm  laborers from working in
infested fields.
   The fire ant  is harmful  to wildlife and
livestock in many states. Poultry houses are
sometimes plagued  by  the  fire ants  During
periods of large amounts of  rainfall, the ants
thrive.
   Various pesticides have been used to con-
trol these ants, but concern  has been  raised
about  the long term effects of these
chemicals.
   Mirex was introduced in  1961 to combat
the fire ant problem,  and after 1961 was ap-
plied under the sponsorship  of the UDSA-
State fire ant programs in all or  parts of
Texas, Florida,  Arkansas, Alabama, Mis-
sissippi, Louisiana, Georgia, North and  South
Carolina. In 1969  the MRAK report recom-
mended  termination  of  the use of Mirex  on
the basis of  substantial evidence developed
under the auspices of the National Cancer In-
stitute that Mirex  is a potential carcinogen
During EPA's review and  subsequent hear-
ings on Mirex from 1973 to 1976, all  Mirex
registrations  were transferred to the Mis-
sissippi Authority for the Control of Fire Ants,
On  August 31. 1976,  the Mississippi
Authority  proposed a  plan providing for the
phaseout of Mirex, On October 21,1 976, the
Administrator  of EPA accepted the  Mis-
sissippi  Plan.
  In addition  to the cancer risk of  Mirex,
studies showed Mirex residues in the tissues
of persons in  states where Mirex was used
heavily;  studies have  demonstrated  that
Mirex crosses the placental  barrier  and has
been found in human  milk of nursing
mothers; and  it appears that Mirex  remains
in the environment and bioaccumulates in
the  food chain,
  Ferriamicide, developed by the State of
Mississippi, contains the active ingredient
Mirex and a small proportion of amine and
metal salt  which  causes Ferriamicide to
degrade much faster than Mirex, Ferriamicide
is designed to be  applied on a corncob grit
carrier with a  soybean oil attractant
Emergency exemptions for Ferriamicide use
in 1978  and 1979 were blocked on
procedural grounds by  a court challenge and
because of the need to evaluate new data.
  Amdro is a new pesticide designed to con-
trol  fire ants.  It has been used in large scale
field tests by  its manufacturer,  American
Cyanamid Company, USDA, the Animal and
Plant Health  Inspection Service, the Texas
Department of Agriculture, Texas A & M Un-
iversity,  and several other southern  univer-
sities. Amdro  is registered for use on range
lands The registrant has petitioned the
Agency  to establish residues for crop use of
Amdro
  Other new  materials are  also being
developed  for control of the  fire ant.  D
This  drawing illustrates flow a fire ant
and stings n hnni,in
MARCH/APRIL 1982
                                                                                                                              29

-------
Giant  Geese
Survive
Another  Winter
 T he largest flock of giant Canada geese in
   the country has survived another frigid
winter in Rochester, Minn., and with the ex-
ception of a small number of cripples, recent-
ly flew to the lake country in central Canada
to  nest
   An estimated 1 1,000 of these biggest of
the Canada goose subspecies were con-
gregated on Rochester's Silver Lake in mid-
winter when thermometers showed readings
32 degrees below Fahrenheit and  the wind
chill factor dropped  the  temperatures to as
much as 100 degrees below zero.
   A critical factor in the survival of these
geese  during such weather extremes is the
discharge of heated water into the lake from
the city-owned  power plant. This hot water,
which  under other conditions and  in other
climates could be a destructive  pollutant,
keeps portions of the lake ice-free all winter.
   The large size of this subspecies of Canada
goose also enables them to survive cold con-
ditions which the many  other smaller sub-
species of  Canada geese would find
intolerable.
   Biologists had long assumed that the giant
species of  this goose had become extinct in
the 1 920's, but in 1 962 some scientists who
were banding and weighing geese at Silver
Lake were startled by the heavy weight of
some of these birds. They later  confirmed
that these  animals were members of the
giant subspecies.
   These large geese normally weigh 12 to
 14 pounds compared to an eight-pound
average  for western  Canadas, for example.
   Wildlife officials believe that the
resurgence of the giant  Canadas at Silver
Lake began with one private flock started by
Dr. Charles Mayo of the  famed family which
launched the Mayo  Clinic.
   These captive  geese attracted wild birds
and soon large flocks began  using lakes in
the Rochester area. The growth of the geese
at Silver Lake was aided when a former
patient at Mayo Clinic who had  enjoyed
watching the birds left funds in his wilt for the
purchase in  1947 of  12 large Canadas from
Nebraska. These birds placed  on the lake
with pinioned wings helped  decoy wild geese
to the location.
   However,  the geese did  not begin to
overwinter in large numbers until 1 948 when
the lake began to serve as  a discharge point
for heated water from the  new city power
plant.
   Once the geese were identified as mem-
bers of the  giant subspecies, State. Federal
and Canadian officials entered into a
cooperative  agreement to protect the
relatively rare subspecies.
   The giant Canada is similar in appearance
to other Canada goose subspecies except
                                         Giant Canada geese emerge from the early
                                         morning mists of Silver Lake in Rochester,
                                         Minn. In  (he background is the municipal
                                         power plant which discharges heated waste
                                         water into the lake.  This hot water keeps the
                                         lake at least partly ice-free for the geese dur-
                                         ing the winter.
 30
                                                                 EPA JOURNAL

-------
that  it  is larger.  It has the same distinctive
black stocking heads  and necks and  white
cheek patches.
   Early each winter morning in Rochester
most of the geese fly off in long undulating
line formations to feed in nearby fields on
waste corn, soybeans, and smal! grains.
   When the flocks return to  Rochester later
in  the day, downtown shoppers pause to
watch the birds as they swoop out of a winter
sky twisting and  rolling to avoid trees and
buildings.
   Patients in the taller Mayo Clinic buildings
forget their health problems at least momen-
tarily when  these huge birds  pass by their
windows. As the geese settle back into the
lake, they gabble furiously.
   A public opinion survey a few years ago in
Rochester revealed that about 75 percent of
the city's residents watch or feed the geese
and that about the same percentage feel the
flock is  beneficial to their city.
   Merchants near the lake who sell shelled
corn in bags for feeding the geese have sold
more than two tons of corn during one winter
month. The sales of photographic and
hunting supply outlets also rise sharply when
the geese are in town.
  Although  the geese have been protected
by establishment of a 66.5 mile square
refuge which includes the City of Rochester,
hunters hide in the fields on the fringes of the
refuge. Biologists contend that hunting may
be necessary to control the increasingly large
flock from reaching nuisance levels.
  Already some cities such as  Toronto,
Canada, have been  shipping their surplus
Canada geese  to other areas because  when
these birds become too  numerous they eat
ornamental vegetation, destroy  lawns, and
despoil park property with their wastes
  Yet most people seem to welcome the
Canada geese  and  many fee! as conser-
vationist-author Aldo Leopold once wrote:
  "One swallow does not make a summer.
but one skein of geese, cleaving the murk of a
March thaw, is the spring."  D
MARCH/APRIL 1982
                                                                                                                            31

-------
Some
Drinking  Water
Filters
Found  Effective
 Mew tests performed for EPA have shown
   that a number  of home drinking water
filters are highly effective in removing
possibly harmful "halogenated organic"
chemicals from ground water used for drink-
ing.
   The tests demonstrated that the effec-
tiveness of the 10 activated carbon filters in
reducing organic compounds ranged from  76
to 99 percent during the filter's claimed
lifetimes.
   The organic compounds involved in these
tests included the solvents tnchloroethylene
and tetrachloroethylene. serious contami-
nants of a small portion of the nation's
ground water supplies.
   The tests are  the third in a series begun in
 1 978 for EPA by the Gulf South Research In-
stitute of New Orleans. Twenty other ac-
tivated carbon water filters were studied
earlier by this firm.
   The 10 filters most recently examined  in-
cluded a pour-through  model, faucet-
mounted units,  a  stationary model placed
below a sink to filter all the water coming
through the  faucet,  and several  line-bypass
models which also are mounted below a sink
but attached to  a separate faucet. The useful
life of these filters varies as does their cost:
from about $10 for  the pour-through device
to several hundred dollars for the line-bypass
units
   EPA, which is  charged with ensuring
drinking water safety under a 1974 law. does
not certify or approve home water filters.
However, the agency had the  filters studied
both for its own information and as a con-
sumer service Many of the filters were tested
beyond their manufacturers' claims, which in
most cases were limited to improve taste or
odor removal
  Other findings from the studies were:

• The performance of activated carbon filters
on the  drinking  water from  four cities was
similar  to their performance in a laboratory.

* Non-pathogenic bacteria do accumulate
on the  carbon filtering material and do in-
crease in drinking water, but no conclusions
can be drawn as to the health significance of
these facts at this time.

• More exotic fitters, including a reverse os-
mosis/granular carbon device and a filter us-
ing ozone gas and carbon,  removed between
70 and 99 percent of halogenated organics
from drinking water.
  A fact sheet  on the third phase filter
studies is available from EPA's Public In-
quiries  Center (PM-215), 401 M  St., S.W..
Washington, DC.  20460,  phone 202/755-
0707.  D
     •••ite~ Canaers, (ires..
     rers. retrace an historical expedition on
the Wisconsin  River.

Back Cover: Early morning ice glaze melts in
s/ir/ny sun on  Bull Run, a stream
Washington.  D.C.,  stained with hlood during
tfn; Civil War.
 32
                                                                                                             EPA JOURNAL

-------

-------

-------