THE ENVIRONMENTAL PROTECTION AGENCY
LEGISLATION, PROGRAMS
AND ORGANIZATION
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This document has been prepared to introduce to you the
Environmental Protection Agency and its programs. The docu-
ment is organized to acquaint you with the legislation
authorizing EPA activities, the history and present organiza-
tion of EPA, the pollution control programs operated by the
Agency, and the EPA budget. A more detailed explanation of
the Fiscal Year 1976 budget is contained in the Justification
of Appropriation Estimates which has been forwarded to the
Committee on Appropriations.
I. EPA LEGAL AUTHORITIES 2
II. HISTORY AND ORGANIZATION 9
ORGANIZATIONAL DIRECTORY 12
MAJOR FACILITIES OF EPA 14
III. PROGRAM SUMMARIES
AIR 15
WATER QUALITY 20
Wastewater Treatment Plant Construction Grants -
State Allocations 23
WATER SUPPLY 24
SOLID WASTES 26
PESTICIDES 29
RADIATION 31
NOISE 34
TOXIC SUBSTANCES 38
RESEARCH & DEVELOPMENT 40
AGENCY & REGIONAL MANAGEMENT 45
IV. EPA BUDGET
APPROPRIATIONS STRUCTURE 49
APPROPRIATION HISTORY 53
FISCAL YEAR 1976 BUDGET 54
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EPA LEGAL AUTHORITIES
Air
The Clean Air Act of 1970 as amended in June 1974 is the basic
authority for the air pollution control program. The major features
of the Act are as follows:
National Ambient Air Quality Standards - The Act directs EPA
to establish national ambient air quality standards to protect the
public health and welfare.
State Implementation Plans - To meet, maintain and enforce the
standards each state must formulate an implementation plan. EPA
must approve each plan; if a state fails to submit a satisfactory
plan, EPA is required to prepare a plan for the state, which the state
must then carry out. If a state fails to enforce its plan, EPA may
enforce it.
New Source Performance Standards - The Act requires EPA to set
standards of performance for new and modified stationary sources of
pollution. These standards are not ambient standards; they are direct
emission limitations for specific types of sources, such as portland
cement plants.
Hazardous Air Pollutants - For pollutants which EPA believes are
very toxic the Act directs EPA to set emission standards.
Auto Emission Controls - The Act requires EPA to establish regu-
lations requiring a 90 percent reduction in the emissions of carbon
monoxide and hydrocarbon from 1970 model year levels. The Act originally
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established a compliance date of the 1975 model year to meet this
reduction; the 1974 Energy Supply and Environmental Coordination Act
amendments changed this to the 1977 model year. EPA is authorized
to extend these dates by one year upon application from automobile
manufacturers.
Water Quality
The Federal Water Pollution Control Act Amendments of 1972 are
the primary authority for the water pollution control program.
Effluent Limitations - The law directs EPA to set effluent limita-
tions to limit discharges of pollutants from industrial and municipal
sources. The law states that limitations, requiring the application
of the "best practicable control technology" for industries (secondary
treatment for municipal sources), shall be achieved by July 1, 1977.
Effluent limitations requiring the "best available technology" for
industrial sources and "best practicable waste treatment technology"
for municipal sources shall be achieved by July 1, 1983.
Water Quality Standards - Water quality standards are established
for all navigable surface waters. Standards consist of a designation
of the use of the stream (recreational purposes, agricultural and
industrial, public water supply, etc.) and water quality criteria
sufficient to protect the stream for such uses. Criteria are estab-
lished for such parameters as temperature, dissolved oxygen, micro-
biological content, odor, etc. The standards are goals to be met
through effluent limitations although where the limitations are in-
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adequate to protect high quality bodies of water more stringent limita-
tions will be applied to the sources discharging into these bodies.
Municipal Pollution Control - The Federal Water Pollution Control
Act established a program of federal grants for construction or major
modification of wastewater treatment plants. The Federal share for
projects is 75 percent. The Act authorizes the expenditure of $18
billion through fiscal year 1975.
Planning - The Act places major emphasis on planning. Facility
planning is carried out by local agencies to ensure that the most
effective and efficient type of waste treatment will be selected.
Integrated planning and management agencies are required to be estab-
lished for all major metropolitan areas; statewide planning is also re-
quired. The Act authorizes Federal financial support to these state
and local agencies.
Water Supply
The Safe Drinking Water Act of 1974 is the basic authority for
the Water Supply program.
Drinking Water Regulations - The Act directs EPA to establish
primary and secondary drinking water regulations—primary regulations
will be those necessary to protect public health, secondary regulations
will be those necessary to protect the public welfare. The primary
regulations are to be promulgated no later than September 1977. The
Act required EPA to publish interim primary regulations by March 16, 1975.
State Enforcement Responsibility - The states have the primary
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responsibility for enforcing the regulations; if a state fails to take
proper action EPA may bring suit to require compliance. The Act author-
izes grants to the states to aid them in establishing enforcement and
monitoring programs.
Protection of Underground Sources of Drinking Water - The Act
requires EPA to publish regulations for state underground injection
control programs. These regulations are to prohibit, after December
1977, underground injections which are not authorized by state permits.
Solid Wastes
The Solid Waste Disposal Act as amended by the Resource Recovery
Act of 1970 is the authority for EPA's solid wastes program.
Recovery of Energy and Materials - The Act directs EPA to promote
the demonstration, construction, and application of solid waste manage-
ment and resource recovery systems necessary to preserve the environ-
ment and natural resources.
State and Local Assistance - The Act directs EPA to provide technical
and financial assistance to states and local governments and interstate
agencies in the planning and development of resource recovery and solid
waste disposal programs.
Solid Wastes Guidelines - The Act directs EPA to establish guidelines,
consistent with public health and welfare and established air and water
standards, for solid waste collection transport, separation, recovery,
and disposal systems.
Pesticides^
The Federal Insecticide, Fungicide and Rodenticide Act as amended
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by the Federal Environmental Pesticides Control Act of 1972 is the
basic authority for the Pesticides program. It authorizes a compre-
hensive program to regulate the manufacturing, distribution and use of
pesticides as well as major research efforts into the effects of
pesticides.
Pesticide Registration - All pesticides must be registered and
classified for "general" use or "restricted" use by October 1976.
Those placed 1n the restricted category may be used only by, or under
the supervision of, certified applicators.
Applicator Certification - The states will certify pesticide
applicators to use restricted pesticides; certification programs must
be developed and applicators certified by October 1976.
Prohibition of Misuse - The use of any registered pesticides in
a manner inconsistent with labeling instructions is prohibited by the
Act. The label directions and precautions are approved by EPA at the
time of registration. Misuse of a pesticide is subject to civil and
criminal penalties.
State Authorities - Under the Act, states may register pesticide
products or issue experimental permits to meet special local needs.
Federal Assistance - The Act authorizes Federal assistance to
the States for enforcement and to help develop and administer appli-
cator certification programs.
Research and Monitoring - EPA may conduct research on pesticides
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and alternatives, issue experimental use permits, and monitor pesticide
use and presence in the environment.
Radiation
There is no single Act which establishes the authority for EPA's
radiation abatement and control program. Under Reorganization Plan
No. 3 of 1970, which established EPA, certain broad authorities were
transferred to EPA. These, together with authorities vested under
other Federal Acts but applicable to the EPA radiation program, estab-
lish the functional parameters for the program,
Standards and Guidelines - Under Reorganization Plan No. 3 the
functions of the Federal Radiation Council were transferred to EPA.
EPA issues guidance to all Federal agencies on radiation matters which
will help in formulation of their standards. In addition, under the
Atomic Energy Act of 1954, EPA was transferred the function of the Atomic
Energy Commission to establish environmental radiation protection standards.
Monitoring and Analysis - Under the Public Health Service Act
(42 USC 241) Section 301, EPA has the authority to monitor radiation
levels in the environment.
State Assistance - The Public Health Service Act (42 USC 243), Section
311 provides the authority to assist states in radiation control efforts;
the Federal Radiation Guidance authorizes the establishment of cooperative
programs with states.
Ocean Dumping - The Marine Protection Research and Sanctuaries Act
provides EPA with the authority to control the ocean disposal of radio-
active wastes.
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Noise
The Noise Control Act of 1972 is the authority for EPA's noise
abatement and control program.
Noise Emission Standards - The Act directs EPA to identify pro-
ducts which are major sources of noise, and to establish noise emission
standards, necessary to protect the public health and welfare, taking
into consideration technology and costs. EPA is to enforce compliance
with these standards.
Aircraft and Airport Noise Standards - The Act directs EPA to sub-
mit proposed regulations to control aircraft and airport noise to the
Federal Aviation Agency which shall consider them prior to prescribing
the same regulations, a modified regulation or no regulation. If EPA
believes the FAA's action does not protect the public health and welfare
it may request the FAA to review its decision and make public the reason
for Its action.
Labeling - The Act requires EPA to prescribe labeling regulations
for any product which emits noise capable of affecting the public health
and welfare or which is sold on the basis of its effectiveness in reduc-
ing noise.
Railroad Noise Standards - The Act directs EPA to establish noise
emission standards for railroads taking into account the best available
technology and the cost of compliance. These regulations are enforced
by the Department of Transportation.
Interstate Motor Carrier Noise Standards - The Act directs EPA to
establish standards for motor carriers similar to those for railroads.
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II. HISTORY AND ORGANIZATION
EPA was created through an executive reorganization plan designed
to consolidate certain Federal Government environmental activities into
a single agency. The plan (Reorganization Plan No. 3 of 1970) was sent
by the President to Congress on July 9, 1970, and EPA was established
as an independent Agency in the Executive Branch on December 2, 1970.
EPA was formed by amalgamating 15 components from 5 departments
and independent agencies. Water quality responsibilities were trans-
ferred from the Interior Department (the Federal Water Quality Admin-
istration) and the Department of Health, Education, and Welfare (The
Bureau of Water Hygiene). Other activities transferred from HEW included
the National Air Control Administration and the Bureau of Solid
Waste Management.
In addition, EPA acquired the Department of Agriculture's authority
to register pesticides and to regulate their use; the Food and Drug
Administration's authority to set tolerance levels for pesticides which
occur in or on food and to monitor compliance with those limits; and a
portion of the Department of Interior's pesticides research program.
Finally, EPA assumed some of the Atomic Energy Commission's and
HEW's authority for setting environmental radiation protection standards.
The Agency also absorbed the duties of the Federal Radiation Council.
Organizationally, EPA is headed by an Administrator, who is supported
by a Deputy Administrator and five Assistant Administrators (see chart).
Three of the Assistant Administrators are responsible for "functional!'zed"
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activities, i.e., activities which cut across all programs. The activities
are: planning and management; enforcement; and research. The remaining
program activities have been grouped under the two other Assistant
Administrators on a media or pollutant basis, e.g., water pollution,
air pollution, solid waste, etc. The activities carried out by these
offices are primarily policy development; standards and criteria
development; and support and evaluation of regional activities.
EPA has made major progress in the decentralization of its operating
programs. It has established regional offices in conformance with the
standard Federal regional boundaries and has assigned major responsibilities
for carrying out EPA programs and policies to the regional offices. This
includes the authority to implement and enforce standards, to conduct
monitoring and surveillance programs, and to provide technical and
financial assistance to State and local governments.
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U. S. ENVIRONMENTAL PROTECTION AGENCY
ADMINISTRATOR
DEPUTY ADMINISTRATOR
ASST. ADMINISTRATOR
FOR PLANNING
AND MANAGEMENT
If!
ASST. ADMINISTRATOR
FOR
ENFORCEMENT
REGIONAL
ASST. ADMINISTRATOR
FOR WATER AND
HAZARDOUS MATERIALS
ASST. ADMINISTRATOR
FOR AIR AND
WASTE MANAGEMENT
ASST. ADMINISTRATOR
FOR RESEARCH
AND DEVELOPMENT
•HUM*
OFFICE C
tNVIRONMG
ENGINEER
OFFICE (
ENVIRONME
SCIENCE
OFFICE (
MONITOR
SYSTEM
OFFICE
niOQRA
OFFICE Of I
_— PROGRAM I
INTtGRATKX
OFFICES
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
ORGANIZATIONAL DIRECTORY
Administrator, Mr. Russell E. Train (202) 755-2700
Deputy Administrator, Mr. John R. Quarles 755-2711
Office of Administrative Law Judges
Mr. Herbert L. Perlman 755-7733
Office of Civil Rights
Mr. Carol M. Thomas 755-0555
Office of Federal Activities
Mr. Sheldon Meyers 755-0777
Office of General Counsel
Mr. Robert V. Zener 755-2511
Office of International Activities
Mr. Fitzbugh Green 755-2780
Office of Legislation
Mr. Robert G. Ryan 755-2930
Office of Public Affairs
Mrs. Patricia L. Cann 755-0700
Office of Regional and Intergovernmental Operations
Mr. Peter Cashman 755-0444
Assistant Administrator for Planning and Management
Mr. Alvin L. Aim 755-2900
Office of Administration
Mr. Howard M. Messner 755-2911
Office of Planning and Evaluation
Mr. Paul A. Brands 755-2920
Office of Resources Management
Mr. Richard Redenius 755-2744
Assistant Administrator for Enforcement
Mr. Richard H. Johnson (Acting) 755-2500
Office of General Enforcement
Mr. Robert L. Baum 755-2530
Office of Water Enforcement
Mr. John B. Molley (Acting) , 755-0440
Assistant Administrator for Water and Hazardous Material
Mr. James L. Agee 755-2800
Office of Pesticide Programs
Mr. Edwin L. Johnson 755-8030
Office of Toxic Substances
Mr. Glenn E. Schweitzer 755-8040
Office of Water Planning and Standards
Mr. Kenneth Mackenthun (Acting) 755-0402
Office of Water Program Operations
Mr. John T. Rhett 426-8856
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Office of Water Supply
Mr. James McDermott (Acting) 426-2467
Assistant Administrator for Air and Waste Management
Mr. Roger Strelow 755-2640
Office of Air Quality Planning and Standards
Mr. Bernard J. Steigerwald (919) 688-8576
Office of Mobile Source Air Pollution Control
Mr. Eric 0. Stork 426-2464
Office of Noise Abatement and Control
Dr. Alvin F. Meyer, Jr 557-7777
Office of Radiation Programs
Dr. William D. Rowe 755-4894
Office of Solid Waste Management
Mr. Arsen J. Darnay 254-7820
Assistant Administrator for Research and Development
Dr. Wilson Talley 755-2600
Office of Environmental Engineering
Mr. Albert C. Trakowski, Jr 755-2532
Office of Environmental Sciences
Dr. Herbert L. Wiser 755-0655
Office of Monitoring Systems
Mr. Willis B. Foster 755-2606
Office of Program Integration
Dr. John L. Buckley (Acting) 755-2611
Region I
Mr. John A. S. McGlennon (617) 223-7210
Region II
Mr. Gerald M. Hansler (212) 264-2525
Region III
Mr. Daniel J. Snyder III (215) 597-9814
Region IV
Mr. Jack E. Ravan (404) 526-5727
Region V
Mr. Francis T. Mayo (312) 353-5250
Region VI
Mr. George J. Putnicki (Acting) (214) 749-1962
Region VII
Mr. Jerome H. Svore (816) 374-5493
Region VIII
Mr. John A. Green (303) 837-3905
Region IX
Mr. Paul Defalco, Jr (415) 556-2320
Region X
Dr. Clifford V. Smith, Jr (206) 442-1220
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MAJOR FACILITIES OF EPA
National Marine Water Quality Laboratory
Narragansett and West Kingston, Rhode Island
Edison Water Quality Research Laboratory
Edison, New Jersey
Office of Air Quality Planning and Standards
Durham, North Carolina
National Environmental Research Center
Research Triangle Park
Durham, North Carolina
Southeast Environmental Research Laboratory
Athens, Georgia
Gulf Breeze Environmental Research Laboratory
Gulf Breeze, Florida
Eastern Environmental Radiation Facility
Montgomery, Alabama
Mississippi Test Facility
Bay St. Louis, Mississippi
National Environmental Research Center
Cindnatti, Ohio
National Water Quality Laboratory
Duluth, Minnesota
Robert S. Kerr Water Research Center
Ada, Oklahoma
National Field Investigation Center
Denver, Colorado
National Enviornmental Research Center
Las Vegas, Nevada
National Environmental Research Center
Corvallis, Oregon
Arctic Environmental Research Laboratory
College, Alaska
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II. PROGRAM SUMMARIES
AIR
The basic objective of the air pollution control program is to
meet by July 1975, or in some instances 1977, the National Ambient
Air Quality Standards which are the allowable level of pollutants
necessary to protect public health (primary standards) and welfare
(secondary standards). Standards have been set for total suspended
particulates, sulfur dioxide, nitrogen dioxide, carbon monoxide,
photochemical oxidants and hydrocarbons. The first three pollutants
are emitted primarily from stationary sources such as power plants and
industrial operations while the remaining pollutants are associated with
motor vehicles.
Controlling emissions to meet the standards is handled through
two major types of activities. (1) States carry out State Implementa-
tion Plans which control pollution primarily by prescribing specific
emission limitations for types of polluters. (2) The Federal Government
controls, by regulation, pollutants from new motor vehicles, newly
constructed industrial sources and sources emitting hazardous pollutants
such as mercury.
To date State Implementation Plans have been developed by the
states and major portions of the plans have been approved by EPA.
Schedules are being issued which require specific polluters to order
and install pollution control equipment such as flue gas desulfuri-
zation equipment (scrubbers) to control sulfur oxide emissions or
electrostatic precipitators to control particulate emissions. Very
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often emission limitations can be met without installing new equip-
ment by modifying the combustion or industrial process or by burning
cleaner fuels. Issuing schedules, monitoring their implementation
and, if necessary, taking legal action to enforce them is handled
primarily by state and local agencies. Federal activity is limited
to situations where the states fail to comply with the Clean Air
Act. EPA provides funding support to state and local agencies
(about 43% of the total cost of their operation); this support is
the largest single item in the air program budget and is about one-
third of the total air budget request in fiscal year 1976.
There has been marked success in reducing some pollutant levels
in the past several years, The national composite trend for particulate
matter (soot, smoke, etc.) concentration shows an approximate 15 per-
cent decline from 1970 to 1973, to a point below the level necessary
to protect human health. However, in many areas, principally urban
centers, the problem is still severe. For example in Los Angeles the
annual mean of measured particulates in 1973 was 1.6 times the level
necessary to protect human health, in Chicago 1.2 times the level, in
New York City 1.5 times, while in Cincinatti the particulate concen-
tration was right at the level necessary to protect human health. Levels
of sulfur dioxide, on the other hand, in these cities were generally
below the level necessary to protect human health — largely as a result
of the switch to "cleaner" fuels. Further reductions in the particulate
levels should be apparent when the full effect of pollution controls is
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felt 1n 1976 and subsequent years; at the end of fiscal year 1975, 85%
of the 20,000 major stationary polluting sources are expected to be in
compliance with the limitations specified in state plans or on a
schedule to achieve compliance. Several categories of sources,
principally metal smelters and coal fired power plants, will probably
not be in compliance by mid-1975, however, largely due to the cost
of installing flue gas desulfurization equipment, and the current
limited availability of control equipment.
The control of pollutants from new motor vehicles is primarily a
Federal activity. The Clean Air Act requires EPA to establish
emission standards for new motor vehicles. The intent of this
portion of the law, which was recently revised by the Energy
Supply and Environmental Coordination Act of 1974, is to reduce
emissions of hydrocarbons and carbon monoxide by 90% from 1970
levels. For the 1975 model year carbon monoxide and hydrocarbon
emissions are approximately 60% lower than the allowable 1970 average
levels and 83% lower than the average of uncontrolled pre-1968 vehicles,
Other areas where Federal regulation is the primary method
of control are the establishment of national emission standards
for new construction industrial sources (New Source Performance
Standards) and for new and existing hazardous pollutant sources
(National Emission Standards for Hazardous Air Pollutants). To
date New Source Performance Standards have been proposed or
established for twenty categories of new stationary sources such
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as phosphate fertilizer plants, municipal incinerators, petroleum
refineries and iron and steel plants. Standards will continue to
be set for additional categories of sources as they provide a
major tool for states to prevent the deterioration of air quality
in areas that are now very "clean", the maintenance of air quality
once standards are achieved, and the control of pollution from
emerging industries such as coal gasification.
The major issue facing the air pollution control program is
striking the proper balance between meeting environmental goals and
the demands of the energy crisis. The Energy Supply and Environ-
mental Coordination Act of 1974 provides certain power plants some
of the flexibility they required to switch to coal by delaying,
until 1979, the date by which they must meet State Implementation
Plan requirements. Needed additional flexibility would be provided
by the President's most recently proposed amendments to the Clean
Air Act which would allow certain plants until 1985 to meet State
plan requirements. The compliance extension is necessary for those
plants which may have difficulty obtaining low sulfur coal or pol-
lution control equipment. Regardless of the length of the compliance
date extension, however, in all cases the primary health standards
must not be violated.
The recent disclosure that the technology being used by most
automobile manufactueres to meet emission standards, the catalytic
converter, significantly increases the emissions of sulfuric acid adds a
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further dimension to another significant issue facing the air pollution
control program. Amendments to the Clean A1r Act proposed earlier this
year would have extended auto emission standards through the 1981 model
year in recognition of the limitations in trying to meet both a 90%
decrease 1n emissions and the goal of a 40% increase in auto fuel
efficiency. To alleviate a potential build-up in the danger from sulfuric
acid emissions, EPA proposed a staged reduction over this period. The
differences between the 1975 model year interim emission standards, the
standards contained 1n the Energy Independence Act proposed earlier this
year, the standards recently proposed by EPA, and the statutory standards
which must eventually be met are as follows (grams per mile):
Hydro-
carbons
1.5
.9
1.5
.9
Carbon
Monoxide
15.0
9.0
15.0
9.0
Nitrogen
Oxides
3.1
3.1
2.0
2.0
1975 Interim
Energy Independence Act
(1977-1981)
EPA Proposal
1977-1979
1980-1981
Statutory Standards .4 3.4 .4
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WATER QUALITY
Today, almost one stream or river mile out of every three is markedly
polluted. This pollution includes oxygen demanding bacteria, nitrogen and
phosphorous compounds (algae nutrients), suspended solids, and industrial
waste including toxic liquids and heavy metals. These pollutants come from
the discharge of waste from industrial, commercial, agricultural, and
municipal sources as well as runoff from activities that cover a broad land
area and are associated with agriculture, silviculture, mining and construc-
tion.
The emphasis of the water quality program has been on controlling
the discharge of pollutants into the waterways from specific industrial
and municipal sources. Pollution from these sources is generally easier
to control (as compared to controlling runoff from agriculture and similar
activities) as the source of the pollution is confined, the composition of
the pollutant can be more easily determined, and control measures are
easier to implement. Three major methods are required under the Federal
Water Pollution Control Act to control point source pollution: issuing
wastewater discharge permits, promulgating effluent guidelines and improv-
ing the coverage and efficiency of public owned waste treatment works.
Wastewater discharge permits generally require sources to reduce the
level of pollution to that achievable with the "best practicable technology"
by 1977. Permits to be issued in the future will require the reduction of
pollution to the level achievable with the "best available technology" by
1983. The permits include schedules for installation of control equipment
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or process changes. Over 50,000 permits will eventually be issued; over
24,000 have been Issued to date. The bulk of the permits issued have been
issued by EPA. EPA encourages state assumption of this program; to date
over 20 states have accepted this responsibility.
Effluent guidelines for wastewater discharge sources have been
issued for approximately 30 industries: cement manufacture, phosphate
production, the rubber industry, agricultural feedlots, beet sugar
processing, petroleum refining, glass manufacturing, etc. Guidance for
other industries are being developed.
Through the wastewater treatment construction grants program, the
coverage and effectiveness of publicly owned sewage treatment plants is
being upgraded. A large proportion of the Nation's population is
presently served by sewage systems that do not provide adequate wastewater
treatment. The grants cover up to 75% of the costs of planning, designing
and constructing sewage treatment plants -- either new construction plants
or modifications to existing plants. The Federal Water Pollution Control
Act Amendments of 1972 authorized $18 billion of Federal assistance.
Other aspects of the water quality program include planning assistance
to control pollution in major segments of river basins, including storm
water runoff and runoff from broad land areas, technical assistance to
states and local authorities and research and development into the health
and environmental effects of pollutants and means of controlling them. Grant
assistance is also provided to state agencies to assist them in their permit
issuance, monitoring and enforcement activities.
Since the enactment of the 1972 Amendments, the major emphasis in the
water quality program has been on issuing "first round" wastewater discharge
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permits (those designed to reduce the level of pollution to that achievable
with the best practicable technology by 1977) and awarding construction
grants. The emphasis is now switching to monitoring compliance with the
discharge permits requirements; additional effort is being placed on increas-
ing the rate of obligation of construction grant funds and ensuring that
grant obligations quickly result in construction.
Future years' activities will be directed toward achieving the 1983
goal of making waters fishable and swimmable. Program decentralization
will continue with Increased delegation to the states and greater priority
given to integrating program activities with the states. The additional
workload will require additional sources of funds such as that which would
be provided by the proposed Cleveland Bill (H.R. 2175) that would allow the
states to use up to two percent of their annual wastewater treatment plant
construction grant allotment for certain review and certification activities.
Attention will be focused on the cost effectiveness of constructing sludge
treatment facilities, particularly treatment capabilities required to meet
the 1983 goal.
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Wastewatcr Treatment Plant Construction Grants -
State Allocations
TOTALS
Alabama
Alaska
Arizona
Arkansas
California
Colorado
Connecticut
Delaware
Dlst. of Columbia
Florida
Georgia
Hawaii
Idaho
Illinois
Indiana
Iowa
Kansas
Kentucky
Louisiana
Maine
Maryland
Massachusetts
Michigan
Minnesota
Mississippi
Missouri
Montana
Nebraska
Nevada
New Hampshire
New Jersey
New Mexico
New York
North Carolina
North Dakota
Ohio
Oklahoma
Oregon
Pennsylvania
Rhode Island
South Carolina
South Dakota
Tennessee
Texas
Utah
Vermont
Virginia
Washington
West Virginia
Wisconsin
Wyoming
Guam
Puerto R1co
Virgin Islands
American Samoa
Trust Territory of Pacific Islands
Total
Authorization for
Fiscal Years
1973. 74 & 75
$18.000.000,000
95,821,100
51,569,600
43,259,200
81,362,800
1,894,076,900
89,874,200
308,684,700
111,035,200
146,295,800
691,686,500
242,575,800
109,558,300
38,002,500
1,136,455,100
483,619.900
197,194,700
112,696,700
188,609,400
154,404,100
153,097,200
564,743.400
573.905,000
1,213,699,300
337,866,800
80,756,900
314,797,600
28,222,800
77,973,500
64.920,400
153,817,300
1,300,686,700
36,265,400
2,089,647,700
226,984,200
12,013,100
979,291,100
134,336,100
154,189,600
• 992,798,000
90,908,600
170,538,900
17,736,800
213,748,200
420,340,100
44,996,100
45,397,400
496,196,400
213,176,100
122,150,600
284,762,800
8,320,100
12,931,200
169,968,400
15,390,700
1.554,900
5,087,100
Total
Available
as of
April 1, 1975*
$13,584.792,177
71,797,528
28,817,066
35,135,547
58,242,570
1.549,236,299
62,256,583
244,682,818
85,708,840
80,628,800
492,427,555
205,297,366
91,353,900
21,105,154
1,005,459,545
398,391,198
141,116,533
88,892,566
148,820,305
125,362,265
90.912,260
365,962,305
415,102,516
1,004,032,914
216,639,577
57,692,206
221,333,938
13,753,278
49,330.098
53,232,076
94,075,228
939,761,298
31,737,294
1,498,342,352
191,327,571
8,222,452
808,621,889
114,764,285
92,562,113
724,393,750
59,113,175
147,811,520
12,249,465
178,174,904
256,049,122
37,907,287
33,193,310
331,283,490
115,139,757
109,249,400
197,652,155
4,469,517
11,187,200
150,148.388
10,516,450
1,442,400
2,672,800
Unobligated balance as of April 1, 1975
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Water Supply
The primary objective of the water supply program is to assure
that the public is provided with safe drinking water. Today there
are more than 240,000 public water supply systems serving approximately
170 million people. Many of these systems are using obsolete equipment
and techniques to collect, purify and deliver potable water to the
public. A survey of 969 water supply systems in 1970 by the Department
of Health, Education and Welfare revealed that 36 percent of the tap
water samples contained one or more bacteriological or chemical con-
stituents exceeding Public Health Service drinking water standards.
The Safe Drinking Water Act, under which EPA's program now operates,
was signed Into law in December 1974. The Act gives the Agency broad
responsibilities and authorities to protect and improve the quality
of potable water. Prior to enactment of the Safe Drinking Water Act,
EPA's water supply authorities were quite limited.
Under the Safe Drinking Water Act the Federal government is to
establish primary and secondary drinking water regulations. Major
responsibilities for enforcing these regulations will be with the
states. Primary regulations will specify maximum allowable contaminant
levels necessary to protect health. Secondary regulations will specify
contaminant levels necessary to protect public welfare and will apply
to such characteristics as the odor and appearance of drinking water.
The contaminant levels are to be established after a study conducted by
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the National Academy of Sciences and no later than September 1977.
Interim regulations were proposed by EPA in March 1975 to be effective
in December 1976.
The states also have the primary responsibility for controlling
underground injection. The state programs, which will be developed
in accordance with EPA regulations, will control the injection of
contaminants such as industrial by-products and municipal wastes
through a permit system. While a number of states have recently
shown greater reluctance to permit deep well injection system, under-
ground disposal of contaminants is clearly an increasing problem.
The states will be assisted in developing water supply enforce-
ment programs and underground injection permit programs through techni-
cal assistance provided by EPA and through grant assistance. Other
activities that will be undertaken include a survey of the quality
and availability of rural drinking water supplies. Research to be con-
ducted will include studies of the health effects of contaminants in
major metropolitan drinking water supplies with an emphasis on
carcinogens, and the development of new methods to treat raw water to
make it potable and of Improved ways to detect and identify the existence
of contaminants.
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SOLID WASTES
Over four billion tons of waste are generated in the United States
every year, of which over 10 million are hazardous -- that is to say,
toxic, flammable, explosive, or infectious. Potential health and
environmental effects vary considerably, from the direct threat of
hazardous wastes to those of other wastes such as sewage sludge, aban-
doned cars, waste oil, and wastes from confined animal feeding operations
EPA has formulated two strategic goals for the solid waste program:
(1) to achieve acceptable and safe management of solid wastes and (2)
to conserve natural resources. Resource recovery presents an alter-
native to disposal, and can usually be achieved at a lower cost. The
potential exists to recover, from mixed municipal waste, seven percent
of the annual national iron consumption, eight percent of the aluminum
and 19 percent of the tin consumed. The "recovery" of energy presents
an equally attractive alternative to disposal of municipal waste. The
equivalent of 317,000 barrels of oil per day could be saved in 1980
if energy recovery systems were implemented in the 48 metropolitan areas
where such systems appear feasible. Presently, projects are planned
which will save the equivalent of 42,000 barrels of oil per day in 1980.
The basic tools employed to meet the solid waste programs goals
are threefold: (1) characterization of the problems associated with
solid waste management and analysis of waste management alternatives
with particular attention to hazardous wastes, (2) development of
improved disposal and materials recovery methods and demonstration of
advanced technologies, and (3) providing technical assistance to states
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and local governments to stimulate solid waste regulatory action and
to help develop materials and energy recovery systems.
The priority solid wastes program activity is directed to the
control of hazardous wastes. The dangers of chemical and other
hazardous wastes are being evaluated and the technologies available
to control this type of pollution are being assessed. As 60% of the
hazardous wastes are organic and can be burned, incineration has been
chosen as the first priority activity; the remaining hazardous wastes
must be placed on land or treated chemically (e.g., by ion exchange,
neutralization, or chelation). A major aspect of this effort is under-
taking benefit-cost analyses as an aid in arriving at an appropriate
guideline or standard. To date analyses have been completed for nine
industries -- inorganic chemicals, petroleum refining, batteries,
primary metals, organic chemicals (including pesticides and explosives),
metals mining, paint and allied products, Pharmaceuticals and electro-
plating.
Problem characterization and technology assessment is also proceeding
for nonhazardous wastes. Investigatory work is being undertaken to
describe the effects of leachate -- water that has soaked through
waste in land disposal sites and absorbed soluble or biological agents
which, in some areas, may contaminate groundwater supplies. Work is
also directed toward sewage sludge disposal, particularly the heavy
metals problem, and the recovery or disposal of other wastes such as
oil and tires.
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A major output of the problem characterization and technology
assessment work is the development of guidelines for solid waste
disposal. To date EPA has published two guidelines, Land Disposal
and Thermal Processing. Five guidelines are being developed: one
in waste collection and four in resource recovery -- including waste
separation, mixed municipal solid waste recovery, and Federal procure-
ment.
The bulk of EPA's methods development and demonstration work and
technical assistance to states and local governments is directed toward
resource recovery. Six projects have been started to demonstrate
different types of energy and materials recovery. In St. Louis shredded
solid waste is used to supplement coal at an electric power plant. The
waste processing plant handles 650 tons per day and produces 80 tons
of fuels and seven tons of ferrous metal for every 100 tons of waste.
There are two pyrolysis projects. In San Diego, a heat flash process
will be used to produce oil from organic wastes, separating ferrous
metal and glass from mixed municipal solid waste. The pyrolysis pro-
ject in Balitmore is producing combustible gases used to generate steam.
Other projects in Wilmington, Delaware, Franklin, Ohio and Lowell,
Massachusetts are demonstrating different types of material and energy
recovery systems.
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PESTICIDES
Pesticides are of enormous benefit to man, particularly in the area
of agriculture production, sanitation and disease control. Nearly a
billion pounds of pesticides, embracing 34,000 pesticide products formu-
lated from more than 1,000 chemical compounds, are used annually in the
United States. The widespread use of pesticides, more than half of which
is in agriculture, particularly cotton and corn production, has increased
the possibility of injury to humans and damage to the environment. According
to the first Annual Report of the Council on Environmental Quality, there
are, annually, between 100 and 200 human deaths in the United States from
the improper use of toxic pesticides which include organophosphates such
as malathion and parathion. The adverse effect on the environment of the
use of less toxic but slower degrading pesticides such as the chlorinated
hydrocarbons (e.g., DDT, aldrin, dieldrin and toxaphene) has been documented
by measured lethal concentrations in dead wildlife. The delayed health
effects to humans as these compounds, soluble in body fat, are passed on
in the food chain may be many years in appearing.
EPA's pesticide program is based upon three specific approaches.
One, pesticides are registered to prevent harmful products from entering the
market and to require labeling to assure proper use. The 1972 amendments to
the Federal Insecticide, Fungicide, and Rodenticide Act require EPA to register,
by October 1976, pesticide products for general or restricted use. Pro-
ducts are registered only if they perform their intended functions without
unreasonable adverse effects on the environment, including humans. The
registration of a pesticide may be cancelled at any time that information
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surfaces that indicates continued use of the pesticide will result in
unreasonable adverse effects on the environment. If an imminent
threat to human health or the environment exists, the product may be suspended,
Two, the use of pesticides is controlled. Only certified appli-
cators may apply pesticides approved for restricted use. States will
certify the applicators and training will be provided through a joint
effort by EPA, the agriculture Extension Service and State agencies.
It is expected that over two million private applicators and over 100,000
commerical applicators will require certification by October 1976, the
date specified by the Act. Operators who are not certified by October 1976
will not be allowed to use restricted use pesticides.
Three, monitoring and research are conducted to determine the health
and environmental effects of pesticides. Epidemiologic studies of the
acute and chronic long-term human health effects of pesticide exposure
are carried out with particular emphasis on new pesticides for which
industry developed human exposure data has previously been poor or non-
existent. Research is being undertaken with the National Science
Foundation and the Department of Agriculture to develop environmentally
safe alternative pest control techniques. This area also includes
routine sampling of pesticide products from manufacturing establishments
and the market place to determine conformity with their labels.
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RADIATION
The EPA radiation program is directed toward preventing all
avoidable contamination of the environment from ionizing radiation.
The need for EPA to set standards for exposure to non-ionizing radi-
ation is being reviewed. EPA pursues these goals through three inter-
dependent roles: (1) the development of standards and criteria, (2)
assessment of the environmental impact of technology employed by other
Federal agencies, and (3) surveillance of radiation levels in the envi-
ronment.
EPA and the Nuclear Regulatory Commission divide responsibilities
with respect to standard setting and guidance for radiation exposure.
EPA is responsible for issuing generally applicable standards for the
protection of the environment from all sources of radiation, including
ambient standards for the total amount of radiation from all facilities
in the uranium fuel cycle. The Nuclear Regulatory Commission is re-
sponsible for developing, implementing and enforcing standards for
individual nuclear facilities. EPA also develops guidance for other
Federal agencies. This guidance, in the form of standards, is then
implemented by these agencies through regulations that they promulgate
and enforce.
EPA is working on standards for both short-lived and long-lived
radionuclides. Long-lived nuclides are relatively permanent pol-
lutants and their control is particularly important in view of the
expected growth in the nuclear industry. Presently EPA is developing
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standards for the uranium fuel cycle, and nuclear accident pro-
tective action guidelines. Work is underway that may lead to Federal
guidance on medical x-rays and to controlling exposure from radium
and uranium from phosphate plants. Preliminary work is also underway
for updating Federal guidance for occupational exposure to radiation.
In the area of technology assessment, EPA performs independent
environmental analyses of radiation technologies being used or pro-
posed for use by other Federal agencies. Environmental Impact State-
ments, required by the National Environmental Policy Act, are prepared
by other agencies whenever nuclear power plants are authorized or when-
ever new technologies are proposed for introduction. The statements
are analyzed by EPA; these analyses have considerable effect on these
programs and the public's acceptance of them. Currently, the High
Temperature Gas Reactor, which utilizes the thorium fuel cycle and has
been proposed for use in several different sites, is being assessed.
Initial EPA reviews of the Liquid Metal Fast Breeder Reactor, which
employs the plutonium fuel cycle, indicated issues for which additional
information is required. A continuing effort in this area is evaluation
of the probabilities and potential consequences of accidental release
of radioactive material. This work will provide a basis for establishing
guidance in the area of emergency response planning. In addition, EPA
carries on longer range studies such as evaluation of land burial tech-
niques to dispose of low and high level radioactive wastes.
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The radiation surveillance function performed by EPA provides
an independent assessment of the overall condition of the radiological
quality of the environment. An air monitoring network of 19 contin-
uously operating samplers measures ambient radioactivity. This network
is expanded to 74 sites when nuclear weapon testing is carried out
aboveground and radioactivity is widely distributed in the Northern
hemisphere. Other specific air monitoring activities are carried on
to measure plutonium, carbon-14 and krypton-85 radionuclides. Water
analysis and sampling programs are carried on to measure levels of
tritium and other radionuclides near specific radioactive material
sources and at drinking water sites. Another aspect of radiation
surveillance is the computation of population radiation exposure using
data on specific radionuclides released from different sources.
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NOISE
Evaluation by EPA indicates that continuous exposure to
environmental noise levels above 70 Ldn (weighted day-night decibel
level) may be harmful to health, particularly when coupled with
shorter, more intensive exposures in the workplace, during travel or
in the home. About 13 million people presently reside in areas where
the weighted day-night decibel level exceeds 70. About 100 million
people live in areas where the decibel level exceeds 55, a level below
which undue interference with activity and annoyance will not occur.
To illustrate, the weighted day-night decibel level that would be
found in a downtown urban area with some construction activity is
78, the operator of a power lawnmower is exposed to 85 decibels and
in a wooded residential area of a city the weighted day-night decibel
level would be 51.
The EPA program has several major objectives:
(1) to reduce to less than one million people, by
1992, the estimated 13 million presently exposed
to average noise levels about 70 Ldn.
(2) to reduce to less than 40 million people, by
1992, the estimated 100 million presently exposed
to average noise levels above 55 Ldn.
(3) to reduce, by 1980, noise levels inside new
public transportation equipment to 75 decibels.
(The present average level inside a city bus
is 82 decibels; Inside a small auto, 80 decibels).
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(4) to provide adequate warning through a labeling
program to individuals whose hearing is threatened
when using non-occupational power equipment. (Note:
although occupational noise control is within the
purview of the Occupational Safety and Health Act
Administered by the Department of Labor, EPA is
responsible for the review of regulations controlling
noise in the workplace.)
In order of priority, the major actions EPA is taking are:
(1) Reduction of airport and aircraft noise.
(2) Reduction of noise from interstate motor carriers
and railroads.
(3) Protection against voluntary high level individual
exposure through product labeling.
(4) Reduction of noise from construction sites.
(5) Reduction of noise in the interior of public trans-
port.
To date, noise levels necessary to protect human health and
welfare have been defined. The identification of major sources of
noise has been initiated and standards and regulations designed to
control noise are being promulgated.
Noise regulations have been proposed to the Federal Aviation
Administration which, under the Noise Control Act, is required to
hold public hearings and then to decide whether the regulations
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should be issued. One regulation proposed to the FAA would require
that landing approaches to jet airplanes not be below minimum
altitudes which at present the FAA only "advises". If adopted, the
regulation would reduce areas around airports exposed to the very
highest noise levels by 20 to 25 percent. A second regulation would
require the retrofit of commercial and private jet aircraft so that
by June 30, 1976, one-half of the airplanes of an airline fleet must
meet present FAA noise level requirements for new airplanes; by June 30,
1978, all commercial and private jet aircraft would have to meet the levels
currently specified for new aircraft. A third regulation has been pro-
posed to limit the allowable noise from new production small propeller
driven aircraft; this regulation would not affect appreciably the
noise around major airports, but would bring about a gradual reduction
in the noise impact on rural and suburban areas. The latest regulation
proposed to the FAA would require supersonic airplanes, except for those
already produced or committed to production, to adhere to the same noise
standards as subsonic airplanes.
Regulations have been promulgated by EPA to reduce noise from
in-use interstate motor carriers (over 10,000 pounds) and proposed
to reduce noise from trains. The practical effect of the interstate
carrier standard would be to require replacement of mufflers or tires
by about 70,000 of the more than one million trucks and buses presently
in operation. The reduction of noise from train locomotives would be
achieved through the installation of mufflers.
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The regulations proposed by EPA to limit noise from new medium
and heavy duty trucks would reduce noise emanating from 1977 model
year vehicles by 6% below the level of most new trucks today, and by
13% for 1983 model year trucks. The regulations which have been pro-
posed for portable air compressors would lower noise levels by 14%.
Other regulatory activity in the noise program centers around the
development of labeling regulations which give notice to a prospective
buyer of the level of noise the product emits or its effectiveness
in reducing noisev Work is currently underway which will lead to
the labeling of devices to protect hearing.
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TOXIC SUBSTANCES
The primary objective of the toxic substances control program
is to reduce the danger to man and the environment posed by toxic
substances. Today there are more than 20,000 chemical substances
being produced in the United States for commercial purposes, with
500 to 700 new chemicals introduced into the marketplace every year.
Of this number, about 80 percent are toxic under some conditions, and
about 1.5 percent are sufficiently hazardous to cause environmental
concern. A number of these chemicals, such as vinyl chloride, arsenic,
polychlorinated biphenyls and asbestos, have been involved in incidents
which have created widespread public attention.
EPA's current toxic substances program is carried on under the
authorities granted in the Agency's major legislation such as the
Clean Air Act, the Federal Water Pollution Control Act, and the Solid
Waste Disposal Act. These legislative authorities can be used to
regulate toxic materials in an effluent or emission, or when disposed
of as solid wastes. There are also provisions to regulate the trans-
portation of toxic material and to prevent and clean up accidental
spills. However, there are currently no authorities to regulate the
production or use of toxic substances.
In February, 1971 the Administration proposed legislation to give
EPA the authority to regulate chemical products by requiring testing,
labeling, and directions for use so as to prevent them from entering
the environment 1n harmful form. That bill passed both houses last
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year in different versions, but had not cleared conference before
adjournment.
The EPA toxic substances program was created in 1971 to develop
a control strategy for toxic materials which cross traditional media
lines. The program is developing predictive techniques for early
warning in identifying substances most likely to pose a hazard to
man or the environment, and implementing methods to monitor air,
water and soil for selected toxic chemicals. The program is also
preparing to implement the anticipated legislation by establishing
the mechanism to develop reporting and data processing systems, stand-
ards for test protocols, and regulatory restrictions on the production
and use of toxic substances to protect health or the environment.
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RESEARCH AND DEVELOPMENT
The EPA research and development program is designed to produce
the scientific information and technical tools on which to base
guidelines, standards and strategies to control environmental pol-
lution. The major thrusts of the program are in air and water pol-
lution research, with a stong emphasis on the acceleration of energy
related environmental research. There are also significant programs
dealing with such specific environmental problems as solid wastes,
pesticides, radiation, noise and toxic substances.
The research activities in each of these programs encompass
the determination of the health, ecological, and economic effects
of pollutants, the identification and characterization of pollutant
sources, the study of transport, transformation and ultimate dis-
position of pollutants in the environment, and the development of
economical means of controlling pollutant discharges. Improved
sampling, analytical, data handling, and quality assurance methodo-
logies for pollutant measurement and monitoring are being developed
as are new and improved technologies for pollution control and
resource recovery.
The air pollution research and development program is designed
to respond to the requirements of the Clean Air Act to protect
public health and walfare from the adverse effects of air pollution.
Health and ecological effects studies are conducted to provide the
criteria for establishing air quality standards. For example, the
potential health impact of catalytic muffler related emissions is
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being assessed as are the health and ecological effects of such air
pollutants as hydrocarbons, particulates, and nitrogen oxides. Other
work is directed to validating models for providing estimates of
atmospheric oxidant concentrations, evaluating the desirability of
utilizing emissions standards, rather than ambient air standards, in
the development of pollutant control strategies, and developing moni-
toring methods and associated quality assurance procedures. In addi-
tion, the control technology R&D program seeks to identify sources
requiring control, to assess the capabilities of existing control
approaches, and to develop economical control technology for the
major pollution sources.
The water quality research and development program is designed
to develop cost effective wastewater control and treatment techno-
logies for municipalities and industries, including processing alter-
natives to avert pollution and save energy and raw materials. The
program also includes development of monitoring methods and quality
assurance. Strategies for the management of pollution from such non-
point sources as agricultural, mining, and construction activities
are being developed. Emphasis is placed on determining the health
and ecological effects of land disposal of sludges resulting from
municipal waste water treatment, utilization of industrial residuals,
achieving cost reductions in the treatment of municipal and industrial
wastewater and determining the ecological effects of ocean dumping.
The water supply research and development program is structured
to provide criteria on which to base the promulgation of drinking
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water standards, and develop new or improved technologies for effec-
tive and economical control of drinking water contaminants. During
Fiscal Year 1976 this program will be expanded in response to the
recent passage of the Safe Drinking Water Act. Research efforts will
focus on detecting and identifying the existence of contaminants,
determining the health effects of organic, inorganic, and microbio-
logical contaminants of drinking water, and investigating the suit-
ability of reusing treated municipal or industrial effluents as a
potable water supply. Treatment techniques for the inactivation of
viruses and the removal of asbestos, trace organics, and trace metals
will also be developed. A major study will be conducted to determine
suspect carcinogens in major metropolitan drinking water supplies.
Solid wastes research emphasizes the development of improved
solid waste disposal techniques and resource recovery technologies,
as well as study of the transport processes of hazardous materials
in ground water systems. The program also involves the evaluation
of deep well disposal of toxic materials and the study of the persist-
ence, in soil and ground water, of heavy metals, organic and inorganic
chemicals, pesticides, herbicides, acids, and alkalies from industrial
residuals and sludge.
Pesticides research emphasizes studies relating to the use of
alternative pesticides and the acute inhalation effects of pesticides.
Mutagenesis screening systems and alternative methods of pest control
are being developed, along with the necessary monitoring and quality
assurance methodologies.
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The radiation research program provides an information base for
standards setting and regulatory actions. The Fiscal 1976 program
will focus on the health effects of non-ionizing radiation and the
effects of long lived radionuclides associated with fast breeder
reactors.
Noise research activities consist of a program to coordinate all
the Federal noise research, development, and demonstration activities.
The EPA energy-related environmental research and development
program is part of a national effort to achieve energy self-suffic-
ciency. The purpose of the program is to provide a sound technical
and scientific basis for achieving this goal while insuring protection
of human health and welfare. There are two major activities: the
processes and effects program to determine the environmental effects
(and hence the control requirements) associated with energy extraction,
transmission, conversion and end use, and a control technology program
to identify, develop, and demonstrate necessary pollution control tech-
niques. The main thrust of the processes and effects program is the
acceleration of research on the health and ecological implications of
new and advanced energy production technologies and conservation measures,
The control technology program involves the assessment of the pollution
potential of a variety of energy source effluent streams and the tech-
nological processes which produce those pollutants, as well as research
and development on control devices and process modifications to reduce
the impact of the pollutants on the environment.
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Inherent 1n the above programs and in the Agency's ability to
enforce standards, is a measurement and monitoring capability. A
research and development program is conducted to provide the methodology,
systems, instrumentation and quality assurance procedures needed to
detect pollutants and their transformation products in all environmental
media, and to be used in evaluating compliance with standards. The
expertise in this research program is frequently called upon to provide
assistance to States in their monitoring programs or in dealing with
emergency situations.
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AGENCY AND REGIONAL MANAGEMENT
Agency and Regional Management is funded by a separate appropriation
which provides for the overall policy direction and administration of
Agency programs as well as for certain common services and functions
which can be most effectively managed on a centralized basis. For
purposes of clarity it is useful to think of these activities as falling
under two main headings: first, "management" and second, "support."
Management covers the salaries and related expenses of personnel
involved in program direction or in the provision of management or
administrative services and includes the following specific activities:
* Agency management which covers the top level policy direction
of all Agency programs provided by the Administrator and his
immediate staff and staff offices; the Agency-wide planning
and management functions of the Office of Planning and Manage-
ment; and the centralized administrative services provided to
all operations located in Washington, D.C., Research Triangle
Park, N.C. and Cincinnati, Ohio.
* Regional management which provides for the direction of program
operations provided by each of the 10 Regional Administrators
and the immediate staffs as well as the general management and
administrative functions provided by the Management Division of
each Region.
The Support area does not involve personnel and consists mainly
of housekeeping or common service items; these can be characterized
as follows:
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* Agency support which covers the services required to support
program operations at EPA Headquarters, Research Triangle Park,
N.C., and Cincinnati, Ohio such as office services, printing,
local communication costs, utilities, guard and janitorial
services, etc. Also included are certain agency-wide services
which are managed on a centralized basis such as facilities
rental, postal service, charges for the Federal Telecommunica-
tions Service, centralized ADP, as well as contracts for economic
and analytical studies which are utilized in connection with a
variety of Agency programs.
* Regional support which includes the support service requirements
of the 10 Regional offices which are not covered by the Agency-wide
services noted above, and covers items such as office services
and supplies, local communications, guard and janitorial services.
In EPA's budget these activities are discussed under the Agency and
Regional Management appropriation. However, the estimates for that
appropriation do not reflect the full amount of these costs. This is
because the total amounts required for Agency and Regional support
activities are allocated among the various EPA appropriations on a
pro-rata basis so as to associate these quite significant costs with
the various programs which benefit from them. The amounts allocated
to the appropriations Abatement and Control, Research and Development
and Enforcement are included under a heading entitled "Program Support"
which is common to each of these appropriations. The residual amounts
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allocated to the Agency and Regional Management appropriation are charged
to headings under that appropriation entitled "Agency Support" and
"Regional Support."
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PROGRAM MANAGEMENT AND SUPPORT
Each of EPA's appropriations includes an activity entitled
"Program Management and Support" which covers the direction and manage-
ment of EPA's major line organizations -- Air and Waste Management,
Water and Hazardous Materials, Research and Development, and Enforcement
as well as the "overhead" services required to support these organizations.
Specifically it includes:
* Program management which covers the program direction and
administrative/management activities of the Assistant
Administrators who direct EPA's major line organizations,
their principal deputies, office directors, and supporting
staffs. Also included are the management and supporting
staff of the laboratories and other field installations
which are under the management of these major line organiza-
tions, as well as the Office of the General Counsel and the
legal staffs of the 10 Regional Offices.
* Program support. This includes general and technical support
services required by certain of the laboratories and other
field installations which are managed by EPA's major line
organizations. It also includes a pro-rata share of Agency
wide support costs which are allocated to the various EPA
appropriations in the manner described in the previous
section on Agency and Regional Management.
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IV. EPA BUDGET
EPA APPROPRIATIONS STRUCTURE
EPA currently has eight.individual appropriation accounts. The
first six of the appropriations constitute the basic operating budget
of the Agency; the latter two are exclusively grants and contracts.
They are:
Research and Development - Includes research activities aimed
at supporting the Agency's standards setting activities and
development of new technology for the control of pollution
in each "media".
Energy Research and Development - Encompasses studies of
the pollution implications of the Nation's energy program
and research into efficient and cost-effective methods of
control.
Abatement and Control - Includes development of standards
and regulations, grants and other assistance to States and
localities, monitoring of the status of pollutants in the
environment, and related efforts aimed at reducing and
controlling pollution.
Enforcement - Primary activities are the enforcement of
Federal regulations against air and water pollution, including
issuance and follow up of industrial effluent discharge permits
under the National Pollutant Discharge Elimination System (NPDES),
enforcement of pesticides registration and product standards, and
enforcement of noise standards and regulations.
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Agency and Regional Management - Provides for basic central
management and support activities, including overall program
direction, progress assessment, program evaluation, finance,
personnel, printing, facilities management, er.c.
Buildings and Facilities - Construction and modification of
new and existing space, safety modifications, etc.
Scientific Activities Overseas - This small appropriation
is used to purchase excess foreign currencies from the
Treasury Department to finance environmental research
projects in such countries as Yugoslavia, Poland, Egypt
India, Pakistan, etc.
Construction Grants - This appropriation finances grants
to municipalities for the construction of wastewater treat-
ment facilities. Obligational authority consists of contract
authority provided under P.L. 92-500. Appropriations to
liquidate the contract authority are requested as needed.
The Appropriations structure has been changing continuously since
the Agency was established in 1970. Initially, the operating budget
was encompassed by a single appropriation, Operations, Research and
Facilities. This account was split into four pieces in FY 1973 -
Research and Development, Abatement and Control, Enforcement, and Agency
and Regional Management. Energy Research and Development was added in
FY 1975 to cover work related to new energy programs. Buildings and
Facilities, constructed from portions of each of the four operating budget
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appropriations, was also added in FY 1975. Scientific Activities Overseas
and Construction Grants have been separate appropriations from the
inception of the Agency.
Funds appropriated under all of the accounts except Enforcement and
Agency and Regional Management are available until expended. All funds
appropriated under the old Operations, Research and Facilities account
were also available until expended.
To provide flexibility between appropriations, Congress has approved
language to permit the Agency to transfer up to seven percent of any
appropriation except Construction Grants to any other appropriation.
This provision enables EPA to make small fund shifts required in day
to day management without obtaining Committee concurrence. Major shifts
exceeding seven percent and minor shifts accumulating to more than seven
percent are cleared with the Committee.
In addition to the appropriation structure, EPA plans and budgets
by "media", or major program areas. The media are:
Air
Water Quality
Water Supply
Solid Waste
Pesticides
Radiation
Noi se
Interdisciplinary
-------
- 52 -
Toxic Substances
Energy
Program Management and Support
Agency and Regional Management
Media programs cross appropriation lines. For example, Air programs
are supported by funds from Research and Development, Energy Research
and Development, Abatement and Control, and Enforcement.
Program Strategies are generally developed along media lines rather
than by appropriation. Consequently, it is generally easier to under-
stand major programs on a media basis. In the interest of clarity,
therefore, the EPA budget justification is organized by media. Program
segments corresponding to the appropriation breaks are separately
described within the total media section.
The Appropriations Committees have also placed controls on shifts
between media. The Agency may add or subtract up to ten percent of the
funds provided for any media. Greater changes require clearance with
the Committees. Although this is not a legal restriction in the sense
of the limitations on transfers between Appropriations, the practical
effect is similar.
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EPA APPROPRIATION HISTORY
Operations, Research & Facilities
Research & Development
Abatement & Control
Section 208 Planning Grants
Enforcement
Agency & Regional Management
Energy & Research & Development
Buildings & Facilities
Subtotal
Sci-.ntific Activities Overseas
Construction Grants
Total
(in thousands of dollars)
FY 1972 FY 1973
440,520
177,221
266,089
(50,000)
34,020
45,891
—
—
440,520 523,221
7,000 4,000
2,000,000 6,900,000
FY 1974
—
159,427
356,015
(100,000)
45,812
55,694
--
—
616,948
2,000
4,000,000
FY 1975
—
170,157
428,488
(150,000)
52,843
59,107
134,000
1,400
845,995
9,000,000
FY 1976 (
--
163,400
339,700
--
53,900
65,700
112,000
2,100
736,800
6,000
__
Ul
U)
2,447,520 7,427,221 4,618,948 9,845,995
742,800
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Air
Water Quality
Water Supply
Solid Waste
Pesticides
Radiation
Noise
Toxic Substances
Interdisciplinary
Energy
Program Nfet.
Agency § Reg
§ Support
Mgt.
Subtotal
Buildings § Facilities
Scientific Activities
Overseas
- 54 -
FY 1976 PRESIDENTIAL REQUEST
BY MEDIA AND APPROPRIATION
Abatement
§ Control
pos.
773
1,729
175
161
671
174
75
45
--
--
195
--
3,998
77
144
19
11
29
4
9
6
35
339
$000
,235.
,521.
,860.
,622.
,552.
,337.
,592.
,850.
--
--
,975.
--
,547.
1
9
9
7
1
1
2
3
6
9
Enforcement
pos.
444
744
5
--
153
.-
10
--
--
--
169
--
1,525
$001
12,020
21,293
100
--
3,582
--
521
--
--
--
15,643
--
53,162
0
.0
.5
.0
.9
.7
.9
.0
Research §
Develonnent
pdsT $Uo
454
581
75
23
148
57
1
11
252
--
177
--
1,779
47,
44,
12,
3,
11,
1,
1.
20,
18,
162,
973
892
364
997
197
640
45
209
775
--
536
--
631
Agency § Energy Research 5
Regional Management Development
P°s- pos.
.6
.4
.2
.3
.9
.0
.0
.0
.8
40
.4
1,837 67,358.5 --
.6 1,837 67,358.5 40
$000
--
--
--
--
--
.-
--
--
112,000.0
_-
--
112,000.0
Other
$000
--
--
--
--
--
--
--
--
--
--
--
--
2,100.0
6,000.0
Total
POS.
1,671
3,054
255
184
972
231
86
56
252
40
541
1,837
9,179
--
--
~ $000
137,228.7
210,707.8
32,325.1
15,620.0
44,332.9
5,977.1
10,158.9
8,059.3
20,775.8
112,000.0
70,155.9
67,358.5
734,700.0
2,100.0
6,000.0
Reimb. Alloc.
Accounts, etc.
121
121
Total
3,998 339,547.9 1,525 53,162.0 1,779 162,631.6 1,837 67,358.5 40
112,000.0
8,100.0 9,300 742,800.0
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