WATER POLLUTION
CONTROL
1969-1973
THE
FEDERAL
COSTS
A REPORT TO THE CONGRESS
U. S. DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINSTRATION
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A Report to the Congress
WATER POLLUTION CONTROL
1969-1973
THE FEDERAL COSTS
U. S. Department of the Interior
Federal Water Pollution Control Administration
Washington, D. C.
January 1968
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TABLE OF CONTENTS
PAGE
Introduction 1
Summary 6
Table 1 8
Declaration of Policy - Section 1 9
Comprehensive Programs for Water Pollution
Control - Section 3.....* 9
Comprehensive Programs - Section 3(a). 10
Water Quality Control Through Storage for
Stream Flow Regulation - Section 3 (b) 12
Grants to Non-Federal Water Pollution
Control Agencies - Section 3(c) 14
Interstate Cooperation and Uniform Laws - Section 4...17
Research, Investigations, Training and
Information - Section 5 18
Training - Section 5(a) 19
Technical Investigations and Assistance
Section 5(a) and (b) 26
Collection and Dissemination of Data -
Section 5 (c) 29
Research and Development - Section 5(a) and (d)..32
Field Laboratory and Research Facilities
Section 5 (e) 41
Great Lakes Water Quality - Section 5(f) 44
Estuarine Pollution - Section 5(g) 45
Grants for Research and Development - Section 6 47
Grants for Water Pollution Control Programs
Section 7 50
Grants for Construction - Section 8 53
Water Pollution Control Advisory Board - Section 9....58
Enforcement Measures Against Pollution of
Interstate or Navigable Waters - Section 10 59
Enforcement - Sections 10 (d) - (k) 60
Water Quality Standards - Section 10(c) 61
Cooperation to Control Pollution from Federal
Installations - Section 11 63
Administration - Section 12 65
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Table of Contents
PAGE
National Requirements and Cost Estimate Study
Section 16 (a) 67
Manpower and Training Needs - Section 16(b) 69
Waste from Watercraft - Section 17 69
Industrial Incentives - Section IS 70
vi
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ERRATA SHEET
Page ly "introduction" - change lrth. line from bottom of page
to read July 1, 1968
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INTRODUCTION
There can be no substitute for clean water. Yet pollution for
too long, has been increasing its threat to the Nation's lakes,
streams and aquifers—even to the ocean waters around us. The
people of the United States now realize that polluted water
affects us all.
They have mounted a massive effort to combat pollution and
assure clean waters for the future. Reflecting the rising
public concern—the urgency to correct and control pollution—
Congress has enacted two major pieces of legislation. The
Water Quality Act of 1965 and the Water Restoration Act of 1966
greatly strengthened the Federal Government's ability to launch
a concerted nationwide attack, so badly needed to save our
water resources.
As thus amended, the Federal Water Pollution Control Act pro-
vides a broad range of tools, including research, enforcement,
technical and financial assistance, comprehensive basin plan-
ning, and the training of manpower. It enlists the participa-
tion of State and interstate agencies, municipalities, indus-
tries, universities, and individuals. The success of the
national program depends upon the skilled and effective use of
these tools.
During its two years' existence, the Federal Water Pollution
Control Administration has begun to implement the 1965 and
1966 amendments and has continued the programs that were
already underway.
Section 16(a) of the Federal Water Pollution Control Act,
directs the Secretary of the Interior to "make a detailed
estimate of the cost of carrying out the provisions of this
Act" and to "submit such detailed estimate...for the 5-year
period beginning July 1, 1960, to Congress no later than
January 10, 1968...." The estimate is to be updated annually.
This report outlines an optimum program to meet the Nation's
pollution control needs over the next five years.
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During those years, the major thrust will be the cooperative
Federal-State effort to implement water quality standards and
attain adequate municipal and industrial waste treatment. The
FWPCA will also develop, test, and demonstrate new technology
to solve present and avert future pollution problems. The
training of adequate manpower to operate the waste treatment
facilities is crucial to the success of the whole anti-pollu-
txon effort. Program activity will be directed increasingly
toward water quality control for entire river basins.
The estimates given here represent FWPCA's best thinking at
the start of 1968. At the same time, the uncertainties of
the future are nowhere more apparent than in this fast-moving
field. Moreover, other factors will also affect the thrust
and level of expenditures for pollution control. Some of
these uncertainties and other factors that will affect the
level of effort in the clean water program include:
(1) Better information on national needs.
Federal expenditures should be governed in large
part by contemporary assessments of national needs,
and we are moving rapidly to improve our under-
standing and ability to measure them. A companion
report to this one, "The Cost of Clean Water",
identifies requirements for waste treatment facility
construction and estimates the costs to be incurred
by municipalities, industries, and others in future
years in meeting the requirements. Through the
development of water quality standards and State
and interstate agency program plans, we are gaining
better information on associated programs and needs
The knowledge so developed will contribute signifi-
cantly to future Federal programming. Information
will be refined, improved, and updated annually,
and may significantly affect the future costs of
carrying out the Act.
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(2) New problems.
Despite the best long-range thinking that can now
be applied, we will continue to encounter new
problems to be solved and controlled. We need
only look at situations like the Torrey Canyon oil
tanker disaster to recognize this. The prolifera-
tion of exotic chemicals produced, the persistence
of man-made and natural soil erosion, the sub-
surface disposal of wastes with consequent ground-
water pollution, pollution from animal feed lots
in new locations, dredging and dredged material
disposal, thermal pollution, all represent new or
previously unrecognized pollution problems whose
control is necessary in the context of today's
accelerated clean up.
We must be alert to potential problems and ready
to prevent them before they occur. Leaching and
erosion of mine and mill tailings is a problem of
unspecified magnitude. For example, we must be
mindful of the possibility of commercial processing
of oil shale and associated minerals in the Colorado
River Basin within the next decade. Much more needs
to be known about the nature and extent of the
potential water pollution problems associated with
oil shale development. Past experience in the
mining and milling industry has demonstrated that,
to avert water pollution, pollution control must
be developed as part of the production technology.
To stop such pollution before it starts, and to
avoid the errors of the past, FWPCA is actively
participating in consideration of oil shale develop-
ment within the Department of the Interior.
(3) Development of new programs.
Some programs, such as water quality standards and
State-local basin planning grants, are just now in
their early stages. Their development will involve
new methods. Indeed, to be effective, the whole
national pollution control effort must continue to
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seek out new approaches to resolve existing and
new problems. These will no doubt call for
modifications in the cost estimates.
(4) New legislation.
Some new programs may be enacted into legislation,
significantly revamping current cost, estimates.
Already, the Senate has passed S. 2760, calling
for accelerated research in lake pollution and
acid mine drainage, and increasing the authorities
to cope with oil pollution. Administration bills,
S. 2525 and H.R. 13923, have been introduced, to
control pollution from boats and vessels. As such
legislative changes occur, they will have a
significant impact upon the Federal program. This
report makes no attempt to take potential legisla-
tive changes into account in arriving at the cost
estimates.
(5) The role of related programs and other levels of
government.
There is a complex of interrelated effort in Federal
agencies and programs which can help achieve the
objectives of water pollution control. For example,
the Departments of Labor and of Health, Education,
and Welfare can assist in the training of sewage
treatment plant operators, thus lessening the FWPCA
costs for this item. The tf. S. Geological Survey
can contribute basic hydrologic data to help monitor
water quality standards, reducing the FWPCA budget
requirements in this respect. Remote sensors, such
as the EROS satellite, a cooperative venture support-
ed by NASA, TVA, and the Departments of the Interior
and of Agriculture, may contribute to the surveillance
of heat, oil, and othe types of pollution. These
complementary approaches with other Federal agencies
will be developed and may have significant impacts
upon future FWPCA budgets. There is encouraging
evidence of increased efforts by State and local
governments in response to the strengthened Federal
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effort to control pollution. As these stronger activi-
ties increase, they will in turn directly affect the
shape and nature of Federal program activities. For
example, the water quality standards established under
the Water Quality Act of 1965 will generate new and
strengthened relationships among Federal, State, muni-
cipal, and industrial entities in the whole area of
water quality monitoring.
(6) Changing relationships among various components of the
Federal Water Pollution Control program.
The costs are presented by individual sections of the
Act. However, implementing the Act is a highly integrated
process. Enforcement (Section 10) may depend on data
gathered (Section 5) by the pollution surveillance pro-
gram. Execution of Section 11 regarding pollution con-
trol from Federal installations may rely heavily on
technical assistance supported under Section 5 or on
basin planning supported under Section 3. A major
management objective of the FWPCA is to strengthen this
type of program integration. Thus, in striving for
flexible utilization of all resources to carry out the
Act, subsequent reports may depart somewhat from the
distribution pattern presented here.
(7) Constraints, priorities, and fiscal conditions.
The costs presented herein represent an optimum effort
to meet our pollution control needs. Obviously, other
factors will have a significant effect on the level of
funds actually requested each year. Manpower shortages—
Federal, State, and local—could affect program expansion.
With regard to the treatment works program, a number of
factors such as conditions in capital markets and the con-
struction industry, and ability of States and localities
to gear up to significantly higher levels of construction
activity could change annual estimates. Priorities
within the Department of the Interior and the overall
Federal Budget may also change the level of expenditure
by years. Finally, overall budgetary and fiscal policy
will certainly have an effect on the timing of expendi-
tures .
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SUMMARY
The Federal Water Pollution Control program is evolving rapidly
as a dynamic force in resource conservation. New legislation
and new programs could effect major changes in its direction
and magnitude. In retrospect, it is difficult to envision any
prediction in 1962 of the present FWPCA program and costs.
Different stages of development and thinking, in' technology,
in recognition of needs, all render our estimates tentative.
As of January 1968, this report sets forth the best thinking
as to the action needed under existing authorities for an
optimum program for attacking water pollution, together with
some suggested new authorities. There is a pressing need to
move foward with the elements of the program described herein.
These elements are:
(1) A waste treatment facilities construction grant
program designed to assist communities in acceler-
ating the control of municipal pollution.
(2) Stimulation and support of State and interstate
water pollution control agencies through grants
for strengthening their programs.
(3) Establishment and maintenance of water quality
standards throughout the nation to enhance the
quality and productivity of its water resources
in an orderly, programmed manner.
(4) Prompt and effective enforcement, when necessary
to assure conformance with water quality standards
to protect the health or welfare of persons
endangered by pollution and to cause abatement of
pollution which makes shellfish unmarketable.
(5) A vastly increased training effort with particular
attention to stimulation of waste treatment plant
operator training, and professional and technical
training grant programs, to meet the rapidly grow-
ing demand for skilled manpower.
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(6) An accelerated research effort with strong emphasis
on demonstration, involving in-house activity as
well as contracts and grants to industry, public
agencies, and universities in order to develop
improved or new techniques to combat water pollution.
(7) Increased capability to provide technical assist-
ance to State and Federal agencies, communities,
and industries to help them to apply up-to-date
technology to the solution of difficult problems.
(8) Effective pollution control planning coordinated
with other agencies, with emphasis on river basin-
wide planning.
(9) Development of a Rapidly responding water polluticjn
surveillance system in conjunction with States and
other agencies to monitor compliance with water
quality standards.
(10) Federal leadership in abatement and control of
water pollution from its own installations and
activities.
(11) Expansion of field laboratories to support research,
technical assistance, training, and surveillance.
(12) A variety of recurring and special studies providing
data and conclusions to give new direction and
implementation to existing and future programs.
Costs are shown in Table I. These estimates cover only FWPCA's
effort in carrying out the provisions of the Act. There are
other departments, bureaus and offices in the Federal Govern-
ment which also contribute to the pollution abatement effort.
Their significant contributions are not included in these
estimates since they fall outside the provisions of the Act.
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TABLE I
COST OF CARRYING OUT THE FEDERAL WATER POLLUTION CONTROL ACT
($ Thousands)
Sec. of
FY'
FY
' FY
FY
FY
SHORT TITLE
the Act
1969
1970
1971
1972
1973
TOTAL
Comprehensive Programs
3a
8, 033
10,000
10, 000
10, 000
9, 000
47,033
Water Quality Control Thru
3b
Strejm Flow Regulation (1)
1
Grants 10 Non-Federal Water
3c
2, 000
3,000
4,000
5,000
6,000
20,000
Pollution Control Planning
Agencies
Interstate Cooperation and
4-
Uniform Laws (2)
Training (3)
5a
5,409
8,000*
9,000*
11, 500*
13, 500*
47, 409
Technical Assistance
5a + b
3, 561
5,000*
7,500*
9, 500*
11, 00 0*
36, 561
Collection and Dissemination
5c
2, 330
5, 000*
8,000*
11, 000*
14,000"
40, 330
of Data
Research, Development and
5a + d
28,002
45,000*
50, 000*
50, 000*
50,000*
223, 002
Demonstration
Field Laboratory and
S e
8, 300*
9,000 »
2,000*
J, 400*
20,700
Research Facilities
Great Lakes Water Quality (4)
Sf
Estuarine Study
Sg
1, 000
1, ooo*
2,000
Grants for Research and
6a + b
28, 000
60, 000*
60,000*
60,000*
60,000*
268, 000
Development
Cranes for Water Pollution
7
10, 000
10, 000
10, 000
10, OOO*
10, 000*
50, 000
Control Programs
Grants for Construction (S)
8
225, 000
1, 000, 000
1, 250, 000 (6)
*
*
2,475, 000
Grants Administration
2, 667
4,400
5, 300
12, 367
Water Pollution Control
9
Advisory Boa rd (7)
Enforcement
10d-k
3,498
5,000
5,000
5,000
5,000
23,498
Water Quality Standards
10c
729
1, 000
1,000
1,000
1,000
4, 729
Federal Activities
11
758
1,200
1, 400
1, 400
1,400
6, 158
Administration
12
5, 246
5, 900
6,200
6, 500
6,800
30, 646
Cost Estimate Studies
16a
202
300
300
300
300
1, 402
Manpower and Training
16b
Study (8)
Wastes from Watercraft (8)
17
Industrial Incentives (8)
18
(9)
(9)
(9
TOTAL
326,435
1,173", 100
1, 43 6, 700
183>200
189, 400
3,308,835
1/ $700, 000 per year included in Section 3(a)
2/ Costs distributed in Sections 3, 7, and 10
3/ Includes training of FWPCA employees under Government Employees Training Act - P,L. 85-507
4/ Included in Sections 3, 5(b), (c|, (d) and 10(c)
5/ Includes cost of administering construction grants
6/ Authorized levels Does not consider alternate financing proposals.
7/ $90, 000 per year included in Section 12.
8/ Studici completed - no further costs without further legislation,
j}/ Construction Grants not shown for FYs 1972 and 1973
^Extension of current authorizations required
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DECLARATION OF POLICY
(SECTION 1, FEDERAL WATER POLLUTION CONTROL ACT)
Section 1 of the Federal Water Pollution Control Act estab-
lishes a national policy for the prevention, control, and
abatement of water pollution. It vests in the Secretary of
the Interior the responsibility for implementing the Act
through an Administration created by Section 2, and provides
him an Assistant Secretary, who assists in the discharge of
the Secretary's duties with respect to administering the Act.
The Assistant Secretary, so named presently, provides secretar-
ial direction and supervision for both the Federal Water Pol-
lution Control Administration and the Office of Saline Water.*
COMPREHENSIVE PROGRAMS FOR WATER POLLUTION CONTROL
(SECTION 3, FEDERAL WATER POLLUTION CONTROL ACT)
Effective river basin planning and comprehensive approaches
to pollution control are essential to assure optimum returns
from the massive investment needed to abate pollution. The
various subsections of Section 3 authorize the necessary
planning and program development to achieve pollution control
through the river basin approach.
*This office is funded as a part of the overall costs of the
Office of the Secretary of the Interior, rather than through
the Federal Water Pollution Control Administration Budget.
Costs are not included in this report. Sections 2, 13, 14, 15
and 19 of the Act also engender no costs directly associated
with identifiable program activities and therefore are not
discussed. Costs related to the Oil Pollution Act, 1924,
appear in activities covered in Sections 5 and 10.
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Comprehensive Programs
Section 3(a)
This subsection directs the development of comprehensive water
pollution control programs. The FWPCA has established compre-
hensive projects in various major river basins and regions for
this purpose. As of FY 1968, 16 such projects were in opera-
tion, covering 78 percent of the United States land area and
96 percent of its population.
These projects develop pollution control action programs for
river basins on the basis of projected water needs and prob-
lems. Through the use of the scientific, engineering, and
economic data that the projects provide, FWPCA is able to
delineate present problems, to anticipate future problems, and
to devise a comprehensive approach toward their solution. To
this end, FWPCA has compiled information indicating the major
immediate needs for pollution control in most of the nation's
river basins. The comprehensive projects also have been a
principal source of information, together with the States
themselves, for the establishment of water quality standards in
accordance with Section 10 of the Act.
Both will provide information on which to base standards revi-
sions in the future. They have also been the nucleus for FWPCA
participation in interagency river basin planning as coordi-
nated through the Water Resources Council. This participation
assures that quality control considerations enter into the over-
all pattern of water resource development.
Water Quality standards as established under Section 10 of the
Act provide the formal goals and objectives for basinwide clean
up, heretofore lacking. The standards include compliance plans
and timetables for the control of existing pollution, a major
step toward effective regional control. Planning emphasis will
now be on the longer range considerations, on the problems which
must be anticipated if we are to control pollution in the years
ahead. These are complex issues involving basinwide water
management and development on a regional basis. They will
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involve a variety of efforts such as forecasting the long-term
effects of temperature increases from future thermal electric
generation in the Columbia River Basin, and developing basin-
wide temperature controls; and studying the long-term effects
of agricultural pollutants in San Francisco Bay and recommend-
ing means for control. The long range issues will also involve
participation and coordination with the interstate compact
groups and increasing numbers of other regional organizations.
Many, but not all, of these activities will be performed in
association with the basin planning activities now being
coordinated by the Water Resources Council. This will include
full participation with the other Federal agencies concerned in
completing, by 1972, framework plans for the development of
water and related land resources in the 18 major river basins
of the United States. FWPCA's participation will assure that
pollution control is built into these plans.
The costs for comprehensive water pollution control planning
and programs for FY 1969-1973 appear below. They include, in
addition to direct planning activities authorized by this
subsection, the costs for administering subsection 3(b) and
the grant programs under subsection 3(c) and Section 7. These
are combined here because of the relatively small amounts
involved and the integrated manner in which the mutually
supporting efforts are carried out.
COSTS
(Thousands)
FY 1969
$ 8,033
1970
1971
1972
1973
10,000
10,000
10,000
9,000
TOTAL
$ 47,033
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Water Quality Control Through
Storage for Streamflow Regulation
Section 3(b)
Section 3 (b) requires that storage for regulating streamflow
for the control of water quality be considered in the plan-
ning of Federal reservoirs. The need for such storage is
determined by the constructing agency with the advice of the
Secretary of the Interior. Executive Order 11288 supplements
this statutory directive by establishing a procedure for the
drafting and review of construction plans for Federal water
resources development projects.
Pursuant to these provisions, FWPCA reviews the plans of the
Federal water resources development agencies to determine the
future impact on water quality. When appropriate, additional
storage for streamflow regulation for water cuality control
as well as other project modifications is recommended. Since
Section 3(b) was added to the Act in 1961, FWPCA has made 287
reports to Federal construction agencies assessing the need
for and value of such storage. Water storage for quality
control was recommended in 104 of these reports.
Streamflow regulation is, of course, only one tool for pollu-
tion control and water quality management, and the law
delineates adequate treatment of municipal and industrial
wastes before they enter streams as the basic first step in
pollution control. However, in many instances, waste treat-
ment or other methods of waste control at their source will
not be sufficient to attain desired stream quality over the
long run. In these cases, storing water in Federal reservoirs
for flow regulation is a useful and often essential means of
water quality control.
Although the need for streamflow augmentation is generally
recognized and many reservoir studies and recommendations
have been made towards this end, significant difficulties
are emerging in providing the necessary augmentation. Exist- -
ing patterns of water use, in many cases, are not adequate
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to assure that water stored for water quality control purposes
can be managed effectively to accomplish that end. Improved
techniques must be developed to assure that flow regulation
can be used effectively in conjunction with other controls
and treatment facilities.
There is also the question of Who should pay for the inclusion
of water quality control storage in a Federal reservoir.
Section 3 (b) provides that if the benefits from such storage
are widespread or national in scope, the Federal Government
will pay 100 percent of the cost. From the 1961 amendments
to 1967, if adequate treatment was being given to municipal
and industrial wastes, storage for flow regulation was regarded
as a national benefit and thus was provided entirely at Federal
expense. However, the interpretation of benefits as "wide-
spread or national in scope" has proved troublesome, when
considered in relation to other Acts governing water resource
projects, such as the Water Supply Act of 1958 and the Federal
Water Project Recreation Act.
In light of new concepts of the best practical waste treatment
methods, and increased Federal support for the construction of
treatment facilities, flow regulation storage should now be
considered as a valid alternative method of quality control
only when existing treatment is at the best practicable
economic and technical level. As a result, the Secretary of
the Interior has proposed a new policy on "Reservoir Storage
and Releases for Flow Regulation for Quality Control." The
policy sets forth a new method for computing benefits for the
water quality functions of a multipurpose reservoir, dividing
the costs of the water quality control feature between the
Federal Government and the affected State, interstate, or
other non-Federal public entities.
FWPCA is studying the feasibility of applying the new policy
to as yet unauthorized reservoir projects previously con-
sidered under the old method of computation. Under the new
policy, FWPCA would review proposed Federal reservoirs with
greater emphasis on improved planning, such as the application
of hydrologic models and estimating procedures, improved
consideration of alternatives, and on the actual implementation
of streamflow regulation as a supplement to water quality
management.
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The matter of developing more effective policies for utilizing
streamflow regulations in water quality control programs is
also currently under review by the Water Resources Council.
However, in the final analysis, full and effective implementa-
tion of this technology may require changes in existing
legislation.
The estimated costs for FYs 1969-1973 are for providing
personnel to work with the Federal construction agencies and
the appropriate non-Federal entities in determining stream-
flow regulation needs. These costs are projected at $700,000
per year for FY 1969-1973 and are included in the total under
Section 3(a).
Grants to Non-Federal Water
Pollution Control Planning Agencies
Section 3(c)
This is a new program authorized by the Clean Water Restora-
tion Act of 1966. Hopefully these grants will stimulate the
kind of State-local planning so important to implementing
and improving water quality standards and will lead to the
formation of permanent arrangements for coordinated river
basin water quality management.
As an illustration, joint or coordinated waste disposal
systems serving municipalities, industries and others offer
substantial economies of size and provide opportunities for
more effective and efficient pollution control through unified
treatment and disposal. Shared costs should be less than for
individual treatment. However, although the engineering
technology is available, there are organizational and political
problems which create institutional barriers. A first step
is to get communities, industries and regional economies to
plan together. This provision of the Act offers great
opportunities, over the long run, to stimulate this type of
cooperation to achieve a greater measure of pollution control.
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Section 3{c) authorizes grants to non-Federal agencies to
support effective, comprehensive water quality control and
pollution abatement planning for river basins. The grant
may not exceed 50 percent of the planning agency's administra-
tive expenses for not more than three years.
The planning grant program is currently in the early stages
of development. The first appropriation under the 1966
authorization was $500,000 for FY 1968. To assist prospec-
tive grantees, FWPCA has prepared and distributed "Guidelines
for Grants—Comprehensive River Basin Planning" to State,
local, and interstate pollution control agencies. These assert
that the basic purpose of a pollution control plan is to (1)
serve as a guide for effective action to eliminate and control
pollution throughout interstate or intrastate basins; and
(2) provide permanent basinwide water quality management
programs which involve joint efforts of State, local, and
metropolitan bodies as well as private interests. An essential
feature of a basin plan is the action program which sets forth
financial arrangements and an appropriate institutional frame-
work through which States and local communities can coordinate
their efforts to control pollution in the basin on a continu-
ing basis.
The planning grants could prove to be a vital catalyst in
stimulating State-local efforts to develop comprehensive
basinwide pollution control programs. However, at this
early stage the program's future dimensions are somewhat
uncertain. Experience with this type of grant during the
next few years should clarify future needs.
The costs for administering this grant program were counted
under Section 3(a). They attach largely to providing
personnel to work with the grantee agencies, helping them
develop the most effective program plans. Certain grant
processing costs are also involved.
The estimated costs of the grants themselves for FY 1969-1973,
set out below, are based upon current assumptions as to the
likely response of State and local planning agencies. It
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is anticipated that effective participation in the program
will grow steadily during this period.
FY 1969
1970
1971
1972
1973
TOTAL
COSTS
(Thousands)
$ 2,000
3,000
4,000
5,000
6.000
$20,000
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INTERSTATE COOPERATION AND UNIFORM LAWS
(SECTION 4, FEDERAL WATER POLLUTION CONTROL ACT)
The States have a large measure df responsibility for con-
trolling water pollution, and it is important that their
efforts be closely related to each other if maximum results
are to be achieved. Accordingly, Section 4 directs the
Secretary of the Interior to encourage cooperative efforts
among States, uniform State laws, and interstate compacts
for preventing and controlling water pollution.
All the FWPCA programs, in varying degrees, encourage such
cooperation among the State water pollution control agencies.
But often there is need for a still more formal coordination.
Thus, several interstate pollution control agencies with
varying degrees of program responsibility have come into
being through the interstate compact device. Two notable
examples are the Ohio River Valley Water Sanitation Commis-
sion and the Delaware River Basin Commission, which has
Federal as well as State representation. New ones are being
considered currently for the Potomac and Susquehanna River
systems, among others.
Pursuant to this section, FWPCA has developed knowledge con-
cerning the strengths and weaknesses of various alternative
interstate arrangements. Through processes of reviewing,
advising and assisting, FWPCA helps the States, the existing
interstate agencies, and other parts of the Federal Government,
to determine what is necessary, desirable and workable in
interstate organizations.
Uniformity in State anti-pollution laws also contributes to
an effective nationwide attack on unsatisfactory water
quality. A suggested State water pollution control law has
been in existence since 1950. At the end of 1965, the laws
of approximately three-fourths of the States included all or
parts of its provisions. In that year, a revised version
was developed in cooperation with the Association of State
and Interstate Water Pollution Control Administrators. The
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current issue was in response to the accelerated national
drive to end water pollution and was designed to strengthen
the capacity of States to act effectively. Already the
updated suggested law has been used by many States to improve
their pollution control statutes.
FWPCA will continue advising and assisting the States in
developing such, uniformity as new needs and requirements
evolve. This will include new changes in Federal laws
which call for compatible State responses.
The functions defined by this section are carried out in a
number of ways by several parts of FWPCA. Costs cannot be
isolated realistically; rather they are incorporated else-
where, particularly under Sections 3, 7 and 10.
RESEARCH. INVESTIGATIONS. TRAINING AND INFORMATION
(SECTION 5, FEDERAL WATER POLLUTION CONTROL ACT)
Solving the technical problems in pollution control demands
a sound base of scientific and engineering knowledge and
skilled manpower to apply that knowledge. Section 5
authorizes a variety of activities, including research, field
demonstrations, training, data collection, laboratories, and
technical assistance—all essential to technical and scienti-
fic leadership in the control of water pollution.
Section 5(h) of the Act, added by the Clean Water Restoration
Act of 1966, authorized $60 million for FY 1968 and $65
million for FY 1969 to carry out Section 5 activities, except
for a study of estuarine pollution. Due to budgetary con-
straints, the actual appropriations for FYs 1968 and 1969
were short of the authorized levels.
The funding authorizations expire on June 30, 1969. The
Department will propose legislation to extend them early in
this session of the 90th Congress. However, the cost
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estimates here projected are based on program needs, rather
than on assumed authorizations for the years 1970-1973.
Training
Section 5(a)
Over the long run the lack of adequately trained manpower could
well prove to be the "Achilles heel" of the national water
pollution control effort- Substantial expenditures for con-
struction grants, research and development, river basin
planning, technical assistance and similar¦endeavors are
proposed in various sections of this report. The effective
utilization of these funds and the nature of the changes they
create depend largely on adequate staffs of skilled people,
from treatment plant operator to research scientist. The need
to develop new treatment techniques and the accelerated water
pollution control activity at Federal, State, and local levels,
in industry and elsewhere, makes training a prime program
requisite. Training at all levels must, therefore, become a
major program thrust for FWPCA. A number of new approaches
are being explored. Hopefully the next five years will be a
period of vastly accelerated effort and accomplishment.
If operator training needs are not met, the public may expect
an unsatisfactory return on clean water investment because of
inefficiently operated waste treatment plants. Present State
training facilities and programs are generally inadequate in
both quantity and quality to meet even the current needs.
Thus, a major effort, supporting States through grants under
Section 7, experimenting with new training techniques, and
exploring new channels for training, will be fundamental in
FWPCA's forthcoming program.
The report, "Manpower and Training Needs in Water Pollution
Control" (Senate Document No. 49, 90th Congress, 1st Session),
submitted to the Congress by FWPCA in accordance with Section
16 (b) of the Act, estimates the total manpower now involved
in water pollution control (professionals, technicians and
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treatment plant operators for public and private agencies) at
about 45,000 persons. By further projecting the report's
FY 1972 figures, the manpower needs in FY 1973 can be esti-
mated at 135,000, an increase of 90,000 over FY 1967. The
objectives of the FWPCA training programs authorized under
Section 5(a)(2), (4), and (5) are to encourage, cooperate
with, and assist appropriate agencies, institutions, and
individuals in the conduct of specialized training relating
to the cause, control, and prevention of water pollution. The
programs are designed to provide adequately trained and moti-
vated professional and subprofessional manpower for scientific,
administrative, and technical positions in water pollution
control. They must effect a threefold growth in personnel
over the next five years.
FWPCA is pursuing a number of training approaches: technical
training, both in-house and through the grants device; inter-
agency training; professional training through grants and
research fellowships.
Specialized and advanced technical training is offered to
personnel of FWPCA and other public agencies at all levels,
as well as private agencies and institutions. Such training
is conducted in the FWPCA field laboratories and at the
Robert A. Taft Sanitary Engineering Center in Cincinnati for
new recruits in water pollution control and for experienced
personnel in need of refresher courses. The curriculum
includes technical courses of one and two weeks' duration,
usually at the postgraduate level, broad courses in water
quality management for senior technical and administrative
personnel, orientation courses designed to meet the needs of
particular State and local agencies or academic institutions,
and technical seminars led by government and industry experts
from the United States and foreign countries. FWPCA labora-
tory personnel also provide technical guidance to States,
universities, and other entities offering similar courses.
In FY 1967 some 50 of these short-term courses were presented
to approximately 1,150 persons at six FWPCA field facilities.
Based on projections in "Manpower and Training Needs in Water
Pollution Control," an estimated 24,000 new treatment plant
operators and 3 2,000 new technicians will be needed by FY 1973.
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At the same time, training programs for the 24,000 operators
now on the job must also be expanded and improved. In response
to this growing requirement, the FWPCA regional laboratory-
facilities are developing a greatly stepped-up program to
support State efforts.
Training of sewage treatment plant operators has traditionally
been viewed as a State responsibility. Now, however, FWPCA is
offering practical courses in wastewater treatment plant opera-
tion, methods, and procedures both to operators and to State
personnel engaged in operator training. This enables FWPCA
to develop and test training techniques and materials which
will ultimately be passed on to the States for large volume
local operator training.
The number and variety of all training courses offered will be
substantially increased. Approaches to course content and to
presentation will be varied experimentally. As new laboratory
facilities are built, training will be made available to more
people in new locations.
To maintain training programs proportionate to the personnel
needs, FWPCA facilities should be training not less than 5,000
persons per year,by FY 1973. Such a rate contemplates schedul-
ing 250 to 300 technical short-course offerings per year for
FWPCA and State agency professionals, and subprofessionals,
and for trainers of waste treatment plant operators.
Capitalizing on the far-flung Federal activities already
involved in State training programs, FWPCA is launching an
interagency training scheme. In this direct outgrowth of
the Manpower and Training study, FWPCA is enlisting the coopera-
tion of the Office of Education in the U. S. Department of
Health, Education, and Welfare, and the U. S. Department of
Labor. The goal is a national program for bulk training of
new and incumbent personnel, particularly at the waste treat-
ment plant level.
Already some aspects of FWPCA's training activities are pro-
viding inputs of new and tested course curricula, teaching
techniques and illustrative materials. HEW and Labor have
ongoing activities in their Vocational Education and
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Manpower and Development programs, institutional connections
within the States, well established field organizations, and
substantial funding for mass training to meet labor shortages.
Little, if any, of their present effort is directed to water
pollution control. The skilled manpower need is recognized.
FWPCA's several catalytic efforts are designed to stimulate
the States to emulate these activities.
FWPCA's joining with two Federal agencies, long experienced in
manpower training, should give tremendous impetus to the train-
ing of skilled manpower, a critical element in the 1 waste
treatment effort.
This Federal interagency leadership will encourage the States
and local entities to expedite both upgrading of present
personnel and training of new recruits at the local level.
Nationwide, this activity can direct attention and effort to
a crucial aspect of successful waste treatment—the mandatory
certification of sewage treatment plant operators. States
requiring such certification have been most successful in
improving employment conditions for sewage plant operators.
Providing technician status and career opportunity is an
effective method of moving out of the situation too often
extant, where untrained, ill-paid personnel operate plants
at low efficiency.
The technical training grants program, inaugurated in FY 1968,
is designed to increase the subprofessional manpower resource—
engineering aides, scientific technicians, and waste treatment
plant operators—required for water pollution control. Awards
for funding of teaching staff, for purchasing equipment and
for trainee stipends are made to technical schools, junior
colleges, and similar educational institutions for full-time,
specialized technical training in localities where training
needs, both present and future, are most evident. Seven such
technical training grants will probably be awarded in FY 1968.
These will support pilot operations to demonstrate the value
of various training techniques. The 1969 objective is to
expand the technical training grants program to include 13
additional projects, supporting 200 full-time students. By
1973, the projected needs indicate that this activity should
expand to 80 such awards capable of supporting 800 students.
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The technical training grants projections are predicated on
the assumption that the interagency effort described will
successfully stimulate and generate the other Federal and
State support necessary to meet the needs in this field.
Grants are proposed only in sufficient amount to show the
various types of training which should be offered and are
designed for a modest increase over the five-year period to
stimulate others.
Another aspect of stimulating State training is being studied—
the possibility of Federal assistance in the construction of
training facilities. Since this is still under exploration
and would probably require new legislation, it is only noted
here.
Professional training grants are awarded to academic institu-
tions to establish or extend the scope of advanced training
in water pollution control in their engineering, biological,
physical, and social science departments. Under this program,
institutions are encouraged to develop the specialized and
multidisciplinary training of scientists, engineers, and
administrators in water quality management. These grants
support expansion and improvement of facilities and equipment.
They also are being used increasingly as graduate trainee
stipends to enlarge the number of individuals having knowledge
in the fields of government, education, and industry as related
to water pollution control. Awards are limited to five years,
in order to put more new programs in operation.
In 1966, the awarding of 65 professional training grants at
51 institutions produced 92 graduates from a total of 364
trainees—64 with the M.S. degree and 28 with the Ph.D. degree.
In 1967, the 71 professional training grants awarded to 58
institutions supported 415 professional students, with 217
graduating—174 with the M.S. degree and 43 with the Ph.D. An
estimated 72 awards will be made in FY 1968 for the professional
training of 465 students- 300 will graduate this year.
The Manpower Training Needs report indicated that the estimated
12,000 professionals now in the water pollution control field
will have to increase more than threefold by FY 1974. As
substantial and as innovative as it is, the professional
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training grants program can only be considered as a catalyst
in view of the overwhelming need for,highly trained manpower.
Merely to begin to meet the demand, the professional training
grants' must be extended through FY 1973 and probably beyond.
j
Research fellowships are awarded to individuals for specialized
graduate and postgraduate research training involving investi-
gations particularly related to FWPCA's mission. These awards
support the intensive training of fellows in engineering and
the physical and biological disciplines. They provide funds
for institutional costs of education, stipends for the
recipient, and allowances for supplies. A total of 158
research fellowships were active at 55 institutions in FY 1966.
Of this number, two fellows received the M.S. degree and 48
were awarded the Ph.D. In FY 1967, out of a total of 148
active research fellows at 55 institutions, three received
M.S. and 43 Ph.D. degrees. An estimated 93 fellows will
receive this type of FWPCA support in FY 1968.
During FY 1968, the research fellowship program will reflect
two major changes: (1) support will be limited to candidates
for the doctoral degree, and FWPCA service fellowships will be
established for mature, outstanding professionals whose talents
can significantly contribute to FWPCA's mission, and who carry
out their research at FWPCA laboratories for a stated period.
The costs presented below reflect only FWPCA's expenditures,
thus only a part of the Federal effort in this important field.
They are projected by subprograms for FYs 1969 through 1973.
They include the cost of training a small number of FWPCA
employees under the Government Employees Training Act,
P.L. 85-507.
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COSTS
(Thousands)
FY
Technical
Training
Operations
Technical
Training
Grants
Professional
Training
Grants
Research
Fellowships
Graduate
Training
Grants
Admin is
tration
Total
1969
$ 901
$ 300
$ 3,235
$ 600
$ 254
$ 119
$ 5,409
1970
1,550
1,500
3,700
800
300
150
8,000
1971
1,800
1,900
3,800
1,000
300
200
9,000
1972
2,000
3,350
4,500
1,100
~ 300
250
11,500
1973
2,000
4,500
5,200
1,200
300
300
13,500
TOTALS $8,251 $11,550 $20,435 $4,700 $1,454 $1,019 $47,409
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Technical Investigations and Assistance
Sections 5(a) and (b)
The growing complexity of pollution control problems demands a
sustained and continued upgrading of our technical resources
and knowledge to apply in solving the problems. The investi-
gations, studies, and surveys which can recommend specific
solutions are authorized in Sections 5(a) and (b).
Unlike research and development, whose principal objective is
to develop and demonstrate new technology, the basic purpose of
technical investigations and assistance is the application of
existing knowledge to solve specific problems. Technical
assistance primarily involves identifying the nature of the
problem, recommending application of known methods and tech-
niques to solve it or, if these are not available, recommending
accelerated effort through research or other means for develop-
ing appropriate solutions.
Developing, maintaining, and effectively utilizing a force of
technical experts is essential to water pollution control.
These experts work closely with the other ongoing FWPCA activ-
ities, such as enforcement and comprehensive planning, to pro-
vide specific technical advice on complex problems. Of equal
importance, they provide advice to the States, to other Federal
agencies, to local governments, and others, drawing on FWPCA's
nationwide technical resources.
Some recent examples of such assistance from FWPCA experts are:
'1) At request of the City of New York, evaluations were
made of the water quality at the metropolitan area
beaches; excessive coliform counts proved many of
these waters unsafe for swimming.
(2) Pesticide analyses in various water bodies were made
for the States of Florida, Alabama, and Georgia? for
the Atomic Energy Commission's Savannah River plant
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near Augusta, Georgia; and for the Governor's Commis-
sion on Lake Apopka, Florida.
i
(3) Pollution in San Diego Bay, California is being studied.
An interceptor sewer system and treatment facilities
for the metropolitan area,' completed in 1963, effec-
tively removed domestic sewage from the Bay. The
study will determine the extent of the pollution
caused by the discharge of untreated wastes from
military, commercial, and recreational watercraft.
(4) A study was made to determine the causes of massive
fish kills which occurred in the Lower Mississippi
River in 1961-63. The pesticide endrin was identified
as the cause; sources of this material were located,
corrective action taken, and this potential danger to
the raw water supply of New Orleans eliminated.
(5) The characteristics of sugar mill wastes and their
effect on the waters of the Hawaiian Islands are being
investigated at request of the Hawaii State Department
of Health.
(6) A review was made for the U. S. Department of Health,
Education, and Welfare to determine the adequacy of
treatment proposed for wastes to be discharged from a
proposed nuclear facility near Hartsville, South Carolina.
(7) At request of the Ohio River Valley Water Sanitation
Commission, the problems associated with deep well
disposal of industrial wastes are being studied.
Small amounts of relatively untreatable wastes are
being so handled. The study involves an evaluation of
the sub-surface geology, engineering economics, and an
estimate of the possible magnitude of use of this tech-
nique which may be of widespread importance.
(8) In addition to the many technical assistance projects
completed or underway, there is an impressive list of
requests which cannot be accommodated because of
funding and personnel shortages. An illustration is
the Louisiana request to identify the effects on the
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aquatic environment of industrial wastes discharged by
17 plants on the Calcasieu River.
Requirements for this t^pe of assistance are accelerating,
particularly as water pollution problems are becoming more widely
recognized. Accidental spills of pollutants, such as a recent
fly ash release to the Clinch River in Virginia, are an ever
present possibility. Means of solving or minimizing effects of
accidental spills are under study. Similarly, there is a need
to develop more effective means of carrying out the provisions
of the Oil Pollution Act, 1924. Although oil spills are investi-
gated in cooperation with the Coast Guard, the Corps of Engineers,
and the involved States, and although technical advice and
assistance are provided in combatting the resulting pollution,
the dimensions of the problem require the development of better
and expanded surveillance, a more effective alerting system
and a substantially improved reaction capability.
To date, much of the resources necessary to provide this techni-
cal expertise have been located at the Robert A. Taft Sanitary
Engineering Center and others of the FWPCA field laboratories.
Requests for technical assistance, however, have far exceeded
the resources available to provide such assistance. Further-
more, the demand for technical assistance is expected to
increase as water pollution control accelerates, and as the
States move toward implementation cjf water quality standards.
To meet these technical investigations and technical assistance
needs, fuller staffing is planned to give each FWPCA region a
strengthened capability for technical assistance response.
The estimated costs to meet the expanding need for assistance
are:
FY 1969
1970
1971
1972
1973
TOTAL
COSTS
(Thousands)
$ 3,561
5,000
7, 500
9,500
11,000
$36,561
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Collection and Dissemination of Data
Section 5(c)
President Johnson, in his message on Quality of American Govern-
ment, noted that "...decisions are only as good as the information
on which they are based."
The implementation and enforcement of water quality standards,
the development of comprehensive water pollution control basin
programs, the administering of massive grant support, and the
preparing of annual reports to Congress on pollution control
costs, require up-to-date, accurate information if they are to
be effective.
To provide knowledge on the extent and nature of water pollution
calls for several types of information. First, we need to know
what waste treatment and control facilities--municipal, indus-
trial, Federal, or other—now exist. .We need to know how effec-
tive these facilities are. We need to know present and future
water uses. We need to know current and prospective pollution-
caused problems. Overall, this is an estimate of the situation
as it now stands.
Next, we must know how this situation changes and varies. How
well are the facilities doing their job? Are water quality
standards being met? Can breaches of standards be traced to
sources? How can new situations be dealt with?
The objective of the FWPCA pollution surveillance program is to
provide a mechanism whereby pollution control information and
water quality data are collected, evaluated, and disseminated
for use, particularly as they relate to the implementation of
water quality standards, the establishment of water quality base-
lines, and planning and management programs. The collection of
data is being done in full coordination with other Federal and
State agencies in order that all available sources of technical
information can be utilized at the national, regional and basin
levels.
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Continuous collection of reliable basin information on water
quality, waste discharges, and treatment plants, is essential to
the effective conduct of a dynamic national pollution control
program. This has always been a requirement, but the needs will
intensify with the establishment and implementation of water
quality standards. Many of the difficulties being encountered
in setting standards stem from a lack of, or gaps in, data.
FWPCA will have to be able to detect violations of standards and
measure progress toward objectives. The value of an orderly and
adequate data collection and evaluation system to this effort
cannot be overestimated.
Its data collecting effort over the years has given FWPCA a
good start toward meeting these needs. Now the effort must be
strengthened and intensified. We must increase our sources of
data, ensure comparability from all sources through analytical
quality control, and improve our STORET (STOrage and RETrieval)
System computer programs in order to cope with new data require-
ments. During FY 1968, our efforts will be directed toward:
(1) Describing a benchmark indicating the status of muni-
cipal waste treatment facilities including specific,
scheduled construction needs as identified by water
quality standards, findings of enforcement conferences,
and other repotts.
(2) Planning for the implementation of a national indus-
trial wastwater inventory and an updating of existing
and necessary remedial measures at Federal installa-
tions .
(3) Operating of water quality monitoring stations at
critical points, and assessing and initiating the
coordinated Federal-State monitoring activities, both
in terms of locations which must be monitored today,
and the orderly growth of necessary monitoring to
provide adequate national coverage by 1973.
(4) Strengthening the basic water analysis capabilities
within each region to service FWPCA needs and to assist
State regulatory agencies.
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(5) Launching the Analytical Quality Control program,
including the selection, adoption, and use of certified
agency methods and techniques in the fields of physical
and chemical (orgalnic, inorganic, and radiochemical)
methods, as well as biological analyses, to provide
agencywide uniformity in techniques.
The outputs from this program all provide, on a continuing
"current" basis, accurate measures of progress (facilities
being constructed on schedule, trends in water quality), as well
as identification of situations requiring remedial action (adverse
water quality trends, noncompliance with either construction
schedules or water quality goals).
This is by no means a solely Federal task nor is it confined to
the FWPCA. We need to accelerate State monitoring activities,
and we are working toward this through State program plans. We
have improved coordination with the U. S. Geological Survey in
utilizing that agency's basic hydrologic information. Over the
long run, we will have to find ways of encouraging or requiring
effluent monitoring as well as well as stream monitoring, and
this will require new activities and attitudes on the part of
cities, industries, and others.
Because the vast quantities of State and Federal data require
continuous processing and evaluation, STORET is being upgraded.
Initially, this computerized data processing system was developed
to process water quality data from a variety of sources.
Currently, the system is being expanded to process and evaluate
additional types of data including facilities information, water
quality standards, and implementation plans. Thus, we will be
able to continuously compare facilities in-place versus construc-
tion schedules, and actual versus desired water quality conditions
(i.e., progress by point, stream reach, basin and nationally).
In addition, STORET capability will make possible the early iden-
tification of new types and sources of pollution and timely ini-
tiation of enforcement action.
While the increase indicated over the present level of expendi-
tures may appear large, it is small as compared to the enormous
investment in waste treatment and control facilities. It will
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provide the "best measure of what those treatment facilities are
accomplishing.
To the extent that some of these needs are met by State agencies
and others, FWPCA expenditures will be somewhat reduced. Signi-
ficantly, this cost estimate includes no projection of effluent
monitoring which should probably be assumed by the State-local
governments and by industries.
The costs for the 5-year period are expected to be:
COSTS
(Thousands)
FY 1969 $ 2,330
1970 5,000
1971 8,000
1972 11,000
1973 14,000
TOTAL $40,330
Research and Development
Sections 5(a) and (d)
VThile a great deal of progress in water pollution control can be
made under existing technology, the need for new technology
becomes strikingly evident when the amount and complexity of
wastes produced by modern industrial establishments are carefully
evaluated. Further difficult problems are posed by oil spills,
agricultural runoff, acid mine drainage, and the extremely
troublesome nutrients found in effluents of even the most effi-
ciently operated waste treatment plants. When the volume,
variety, and potency of wastes entering the Nation's streams are
related to the ever-increasing demands for clean water, finding
new ways to deal with pollution becomes a paramount issue.
To pursue the new technologies effectively, FWPCA's research and
development effort is divided into eight programs substantively
oriented to specific problems. Used in mutual support of these
programs are in-house research at FWPCA laboratories and other
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field installations, research grants to universities and others,
demonstration grants to a wide range of collaborators, and
contracts, all authorized in Section 5 and 6 of the Act. The
eight program areas are as follows:
(1) Municipal pollution control requires the development
and demonstration of technology for the effective and
economical control of pollution from sewered and non-
sewered wastes, combined (sanitary and storm) sewer
discharges, storm sewer discharges, non-sewered runoff,
and joint (municipal-industrial) wastes. Emphasis will
continue on demonstrating improved techniques for the
treatment of sewered wastes to augment the data neces-
sary to completely prove a process. For non-sewered
wastes, emphasis will be on demonstrating individual
home, multiple home, and larger institutional treat-
ment units.
Pilot and full-scale demonstration projects to test the
applicability of control or treatment method^ researched
and developed in the areas of combined sewer and storm
sewer discharges are well under way. These projects,
funded under Section 6(a)(1) of the Act, focus on large-
scale evaluation and demonstration of control technol-
ogy » The Section 6 authorization will expire with
FY 1969, though complete solutions are not expected by
that time. Hence, an extension of this authorization
or other funding will be necessary.
Special efforts are being made to demonstrate the tech-
nology necessary to permit joint processing of indus-
trial and municipal wastes for greater economy and
efficiency than independent handling of these wastes
can achieve. Utilizing treatment, ultimate disposal
and water quality control technology developed under
other program elements, pilot and full-scale field
evaluations and demonstrations will continue.
(2) Industrial pollution control technology must be developed
and demonstrated to achieve effective and economical
control of pollution frcm such industries as those
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producing metal and metal products, chemicals and
allied products, power, paper and allied products,
petroleum and coal products, food and kindred products,
machinery and transportation equipment, stone, clay
and glass products, textiles, lumber and wood products,
and rubber and plastic products. In FY 1967 studies
were initiated to identify and analyze problem areas
and to establish the existing state-of-the-art- in
treatment and control technology in selected industries
The competitive economic aspects of industrial waste
control require both conventional and completely new
approaches to assure minimum cost solutions. Current
waste treatment methods, while usually adequate for
today's conditions, offer little promise of providing
the type and degree of treatment which will be required
over the long run. An effective attack on industrial
pollution will require a cooperative industry-govern-
ment effort to determine, develop,and install treat-
ment processes, process modifications, water conserva-
tion programs, etc. By FY 1969, research and demonstra
tions funded by Section 6 grants will cover represen-
tative industrial pollution from all major sources.
In terms of volume and biochemical oxygen demand, this
will encompass over three-forths of the entire indus-
trial waste load.
Agricultural pollution requires research, development
and demonstration of technology to control and prevent
pollution from sources related to agricultural activity
Major forms of pollution associated therewith are
nutrients, pesticides, and silt from runoff; concentra-
tions of salts and other pollutants in irrigation
return flows; runoff from animal feedlots; silt and
other solids from logging and forestry operations; and
unsewered domestic wastes. The composition of the
agricultural wastewater is important in selecting the
appropriate waste treatment process, in defining the
degree of treatment required, and in determining the
costs. Unfortunately, data on the quality character-
istics of agricultural wastewaters are limited. The
U. S. Department of Agriculture has provided helpful
information, particularly to define research needs.
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In-house research in this subprogram is carried out at
the Corvallis, Oregon; Ada, Oklahoma; and Athens,
Georgia laboratories along with associated field sites.
The in-house effort will be significantly increased as
staffing of these laboratories and the preliminary
research are completed. Contract research tied to,
and in support of, laboratory and field effort will be
stepped up. Most of it will involve experimental pilot-
scale applications of various methods to control runoff,
irrigation return waters, and feedlot discharges.
Grant funds will be used largely to support large pilot-
scale and demonstration projects.
(4) Mining pollution control technology concerns the areas
of mine drainage, oil production, uranium and other
sources of mining pollution. As part of this sub-
program, new technology must be developed and demon-
strated to obtain effective and economical controls.
An estimated 4 million tons of acid mine drainage
annually discharge into more that 4,000 miles cfstreams.
Attempts to resolve or reduce such drainage have failed
due to high costs or technical problems for which there
were no immediate solutions. Several research and
development projects are in the final stages of nego-
tiation and others are being planned. The Senate-
passed bill (S. 2760) if enacted, will give substantial
new financial impetus to this program.
Problems related to oil production are of a different
nature and solutions will be sought through laboratory
and field work, including pilot and field scale demon-
strations. The commercial production of petroleum
from the oil shale deposits in the Rocky Mountains is
a potentially serious source of pollution. Substantial
research and development will be required to prevent
saline and severe alkaline pollution in streams and
aquifers, as well as siltation of streams, from becoming
significant problems in the region. In other sources
of mining pollution, FWPCA will seek to develop, eval- .
uate, and demonstrate different levels of treatment
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efficiency at field sites, under diverse operating
conditions, and with various waste types.
Other sources of pollution are significant and also
require development and demonstration of technology
for their effective and economical control. The sources
are principally recreational boats and commercial
vessels, construction projects, impoundments, saltwater
intrusion, natural pollution, dredging and landfill,
and oil.
Increasing amounts of wastes are discharged from the
evergrowing number of recreational and commercial
vessels which ply our waters, both inland and coastal.
Most vessels are not equipped to give even minimal
treatment to sewage and other wastes. Suitable on-board
equipment for properly treating vessel wastes before
discharge is not fully developed. Generally, on-board
sewage treatment units are bulky and heavy, or only
minimally effective. Further research, development,
testing and evaluation are urgently needed to deal
more effectively with these problems. Specific needs
in this area are discussed in "Wastes From Watercraft,"
(Senate Document No. 48, 90th Congress, 1st Session).
The companion Administration bills S. 2525 and
H.R. 13923, if enacted, will provide a control program
for pollution from boats and vessels.
Construction activities th.at affect the quality of
water relate to real estate developments, roads, rail-
roads, power transmission lines, mines and dams. The
polluting substances likely to enter streams during
and after construction include silt, chemicals, oil,
gasoline, litter thrown from vechicles, and wastes
from construction camps and trains.
Saltwater intrusion is a growing ground water pollution
problem in coastal areas. This is of particular signi-
ficance in California, Maryland, New Jersey, Texas and
Long Island, New York. One solution now being
researched involves recharging the aquifiers with
renovated wastewater.
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More detailed knowledge of surface reservoirs is needed
if these are to be managed for optimum results in terms
of water quality. Unfortunately, the storage of water
in reservoirs can adversely affect its quality. Thermal
stratification can occur, leading to chemical stratifi-
cation and diminished dissolved oxygen concentrations
in the colder bottom waters. By 1969, field evaluation
projects should be in progress aimed at mechanical
destratification of impoundments to alleviate these
problems.
The complexity and extent of nonpoint sources of pollu-
tion require a concentrated ini-house effort through a
series of laboratory and field projects. These will be
directed toward short-term problem solutions and evalu-
ating and testing of long-term control techniques in
these problem areas: dredging in the Great Lakes and
Coastal areas, oil pollution in the East and Gulf
Coasts, saltwater intrusion in all coastal areas, and
pollution control techniques for impoundments.
(6) General pollution control includes all research,
development, and demonstration, directed toward the
prevention and control of accelerated eutrophication;
the control of pollution by means other than waste
treatment; the socio-economic, legal and institutional
aspects of pollution; the assessment and control of
pollution in extremely cold climates; the identifi-
cation, source, and fate technology of a variety of
pollutants; and the long-range solutions to pollution
problems.
The aging of waters (eutrophication) has accelerated
in recent years due to the nutrient loads imposed by
increased quantities of municipal and industrial wastes,
land runoff, and natural pollution. The basic mech-
anisms involved in lake eutrophication are not well
understood. Controlling it calls for study of the
biology and chemistry of the aquatic environment,
more complete analytical data about nitrogen and
phosphorus compounds, and research on new and improved
methods for nutrient removal in waste treatment,
including pilot plant studies and field evaluations.
The enactment of S. 2760 would facilitate such research.
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Development of water quality control technology is of
major and increasing importance as the pollution control
runoff by waste treatment becomes increasingly marginal.
Such development includes the so-called at-source
controls as well as such concepts as synthesis, diver-
sion, dispersion, dilution, process change, and envi-
ronmental treatment. Exploration of new techniques in
these categories began in FY 1968; the promising ones
must be moved into pilot-scale and field studies in
FY 1969 as the ,exploratory work continues.
Mathematical models must te evolved relating pollution
causes and the broad range of effects expressed in
social and economic values. Research will be underway
in FY 1969 to augment understanding of these factors.
Research applicable to many sources of pollution must
be expanded. This will include identification and
characterization of pollutants, methodology for detect-
ing and quantifying pollution sources, and determining
the fate of pollutants as they move through the water
environment—all essential to effective pollution
control.
Staffing of the research laboratories at Ada, Oklahoma;
Athens, Georgia; College, Alaska; Corvallis, Oregon, and
associated field sites should be completed in FY 1969.
Research at field sites will be increased. Contract
research will directly complement the in-house effort,
enlisting the specialized talents of researchers,
from industry in particular. Contractors will explore
new concepts in pollution control, utilizing their own
facilities. Their findings will provide the seeds for
full-scale evaluation and deomnstration of the new
techniques in the early 1970's.
Waste treatment and ultimate disposal technology covers
research, development and demonstration for the reno-
vation of wastewaters for reuse. Work in the laboratory
has shown that it is technically possible to achieve
any degree of waste treatment, desired and, in 'fact, to
return wastewater to a quality at least as high as it
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was before use. However, considerable work remains to
be done to achieve these degrees' of treatment at any
necessary location, under any conditions, and at mini-
mum cost. Much of the overall FWPCA research effort
is directed toward the development of completely new
waste treatment processes.! The objective is to develop
by 1975, feasible techniques for complete control of
all point-source wastes. A panel of the Federal
Council for Science and Technology has recommended a
greatly accelerated advanced waste treatment program
incorporating the best talents of the Federal Govern-
ment, universities, private research groups, and indus-
try. Such a program is underway and part of this
continuing effort.
Because research findings have exceeded expectations,
an accelerated program can be undertaken with increased
assurance of both short-and long-term payoffs in both
pollution control and augmented water supplies through
water reuse. Practical payoffs have already occurred
with the design and construction of a number of full-
scale demonstrations of several of the processes.
Under the level of support proposed, it is reasonable
to expect that suitable processes for purification of
all waste streams and ultimate disposal of waste con-
centrates (both municipal and industrial) can be devel-
oped, field-evaluated, and demonstrated by the mid-
1970' s.
There is need for a continuing in-house effort, prin-
cipally at the Cincinnati Laboratory, and increased
use of contracts and grants to further develop or modi-
fy the known processes. At present, some 40 separa-
tion or ultimate disposal processes have been consid-
ered. Approximately 15 have been rejected, while the
rest are at some stage of feasibility determination,
pilot plant development, field evaluation or demonstra-
tion. Some 10 or 12 new approaches will be considered
annually over the next few years and three or four of
jthese are estimated to deserve investigation at least
into the engineering development stage. Work will
move into refinement and optimization of the treatment
technology as the rough screening of process possibili-
ties terminates. In line with this, the highly impor-
tant field pilot plant studies will be emphasized.
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Research grants will provide for a slight increase in
university projects investigating same of the more fun-
damental aspects 6f process technology on the more
important treatment processes. By FY 1969, processes
will have moved further along the development sequence
into pilot stage, fifeld evaluation; and demonstration
plants. Grants under Section 6(a)(2) will be used for
advanced waste treatment projects.
Water quality requirements research is needed to
provide an improved scientific basis for determining
the water quality necessary for municipal, industrial,
agricultural, and recreational uses, and for the propo-
gation of fish and other aquatic life; in other words
research on the effects of pollution.
Far too little is known about the effects of pollution.
The drastic effects (e.g., the massive fish kill) can
be recognized, but quite often the true cause of such
events cannot be defined even in extensive retrospect.
To look ahead and to predict the occurrence of such
events is, unfortunately, well beyond our current
capability for any but the simplest stream systems
under the least complicated set of environmental condi-
tions and pollution loads. There is also the challenge
of detecting, understanding, and then preventing the
more subtle, long-term effects of pollution which could,
even now, be robbing us of valuable water resources.
Such effects, as yet unknown, may be just as real as
the sudden fish kill, the unpalatable water supply, or
the condemned bathing beach.
Because these problems are difficult to solve and the
starting baseline inadequate, a rapidly accelerated
program is needed. Staffing of the recently completed
National Water Quality Laboratory at Duluth, Minnesota,
as well as increased staff at the National Marine Water
Quality Laboratory, Narragansett, Rhode Island, and at
several field sites including the Fish Toxicology Labo-
ratory at Newtown, Ohio, will contribute to this effort.
This in-house effort must be supplemented with contracts,
and grants to obtain the services of highly specialized
and often uniquely qualified investigators.
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The costs of carrying on the research and development
authorized by Section 5 include grants to universities
and others, contracts, and in-house research. In
addition, some research and demonstration, described
herein, is supported by funds authorized under Section 6.
COSTS
(Thousands)
FY 1969 $ 28,002
1970 45,000
1971 50,000
1972 50,000
1973 50,000
TOTAL $223,002
Field Laboratory and Research Facilities
Section 5(e)
Strong focal points of research, technical assistance, and ana-
lytical capability are required to attack and cope with regional
and national pollution problems. Field laboratories and research
facilities provide such focal points and are also excellent loca-
tions for training of workers in the best known methods and tech-
niques in water pollution detection and control.
Under the authority of Section 5(e), the FWPCA has established
one nacional and four regional laboratories. These laboratories
are developing strong research and development capabilities,
pollution control expertise, analytical services, and training
programs.
The regional laboratories, located at Ada, Oklahoma; Athens,
Georgia; College Alaska; and Corvallis, Oregon, are oriented
primarily to the predominant pollution problems in their respec-
tive regions. At the same time, many of these regional findings
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will be applicable to similar situations throughout the country.
For example, research and development directed toward the solu-
tion of problems associated with the pulp and paper industry is
concentrated at the Corvallis Laboratory. The results here are
obviously transferable to other regions. Similarly, solutions
to problems associated with the pollution of groundwater are
being developed at the Ada Laboratory and will have widespread
application.
The National Water Quality Laboratory, located at Duluth,
Minnesota, is concerned largely with researching water quality
requirements for fresh water uses. The results of this research
will ultimately provide a basis for refining and improving
water quality standards everywhere.
The Cincinnati Water Research Laboratory, located at the Robert
A. Taft Sanitary Engineering Center in Cincinnati, Ohio, was
established prior to the Section 5(e) authority. It is involved
in a wide variety of activities oriented toward both national
and regional problems.
Because of the urgent need to get work underway on water quality
requirements for all marine water uses, temporary facilities
have been occupied at Narragansett, Rhode Island. This is the
forerunner of the National Marine Water Quality Laboratory
proposed for this location.
Seven additional laboratories have been planned or authorized to
provide on-the-scene support for regional water pollution
problems and programs in other regions of the Nation. Planning
and construction funds are available now for two of these
laboratories, and planning funds are available for an additional
four laboratories. No new obligational authority will be
requested for FY 1969. The operation and routine maintenance
costs of these laboratories have been included in the program
costs identified with other sections of the Act. The planning,
construction, equipment, repair and improvement costs of the
FWPCA laboratories are shown in the following table.
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NEW OBLIGATION AUTHORITY
FY 1969
FY 1970
FY 1971
FY 1972
FY 1973
TOTAL
(Thousands)
Repair
and
Planning 'Construction Equipment Improvement Total
250
5, 500
7,000
1,200
1,300
1,000
300
1, 350
700
1,000
1, 100
8, 300
9,000
2, 000
1,400
$250
$12,500
$3,800
$4,150
$20,700
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Great Lakes Water Quality
Section 5(f)
Section 5(f) recognizes the special importance of the Great
Lakes in the nation. This subsection directs the FWPCA to
conduct research, studies, and technical development work with
respect to the present and future water quality of the Great
Lakes.
FWPCA has placed great emphasis on developing an understanding
of the Great Lakes and their special problems. For example,
various long-range studies of the Great Lakes have been underway
as a part of the comprehensive programming delineated in Section 3.
Another example is the joint FWPCA and Corps of Engineers effort
to evaluate the effects of dredging operations on Great Lakes
water quality. Once this is determined, these agencies will
jointly arrive at operating procedures to control and abate any
degradation of water quality due to dredging. Technical studies
have been made in support of Federal enforcement actions involv-
ing Lake Erie and Lake Michigan.
In addition, many FWPCA projects are developing technology of
nationwide applicability which will be useful in the Great Lakes
area. Also, the planned Great Lakes Regional Laboratory at
Ann Arbor, Michigan, will be the center of research on water
pollution problems of the Great Lakes.
Costs related to this subsection are dispersed throughout the
FWPCA's programs, such as comprehensive planning, technical
assistance, pollution surveillance, water quality standards, and
research and development. Therefore, they are not separately
identified here.
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Estuarine Pollution
Section 5(g)
The 900-1,000 discrete estuarine systems in the United States
have been an unrecognized national resource, one of the few
remaining natural resources whose use is not guided, in some
degree, by national policies, or programs. Sixty percent of the
United States population lives in the States bordering the
oceans. Coastward migration continues. The oceans have a
direct impact on the health and welfare of every coastal resident,
as well as on the tens of millions of Americans who swim, boat,
fish, and relax along our coasts. Also, thousands of commercial
fishermen depend on our bays, estuaries, and nearshore coastal
waters for their catches.
A great many programs as carried on by the States and at least
ten Federal Departments or independent agencies, have a signifi-
cant effect upon the estuaries, or are affected by estuary use
or management. Few of these programs are oriented toward the
preservation and development of the estuarine resources., Many
conflicting pressures exist for uses of the estuaries, and many
of these destroy an estuary for other uses.
Local communities and States have a major stake in the use and
development of these resources. Many areas are already taking
actxon to preserve, protect, and develop their estuarine resources,
but most such actions are on a piecemeal basis. However, no
central Federal encouragement for this effort or central guidance
toward a nationally accepted objective exists.
There is a growing awareness of the resource values of the Con-
tinental Shelf and other near-shore areas. The development of
these resources will be stimulated by the entering into force of
the Convention on the Continental Shelf in 1964 and by the Marine
Science and Engineering Development Act of 1966. The Convention
has the technical effect of increasing the land area of the
United States by more than one million square miles, or over 25
percent. The Marine Science and Engineering Development Act
established a positive oceanographic policy for the United
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States and calls upon the Federal establishment to develop a
program which will accelerate the development and utilization of
marine resources.
These efforts will profoundly affect FWPCA. The agency must
consider problems of waste disposal into ocean areas; pollution
problems associated with resource development off the Continental
Shelf; and the disposal of sludge, dredging, industrial wastes,
or domestic sewage into shore areas. Solution of the technical
problems in these areas will require formulation and continued
review of new policies arid procedures.
FWPCA has taken the lead as authorized and directed in Section
(5)(g) to conduct, in cooperation with other appropriate Federal,
State, interstate, and local public bodies and private organi-
zations, institutions, and individuals, a comprehensive study of
the effects of pollution upon the aquatic environment of the
Nation's estuaries. A report of this study is to be made to the
Congress by November 1969. It will analyze the importance of
estuaries to the economic and social well-being of the people
of the United States and the effects of pollution upon estuaries;
it will discuss major social and economic trends in the estuarine
zones; and the report will recommend a comprehensive national
program for the preservation, study, use, and development of
estuaries.
Information is being obtained through other agency contacts, con-
tract studies, and the findings of other FWPCA activiriee concerned
with the marine environment. In addition, approximately 28
public hearings are planned at strategic locations around the
country beginning in January 1968. These hearings will enable
local government officials, industry, conservation groups, and
private citizens to present their views on the use and value of
estuaries directly to the study team.
A program arising from the study's recommendations would involve
substantial costs which are not included here. It is estimated
that the present study will require the $1,000,000 authorized
for FY 1969 by the Congress, and an additional $1,000,000 autho-
rization which will be sought for the completion of the study in
FY 1970.
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GRANTS FOR RESEARCH AND DEVELOPMENT
(SECTION 6, FEDERAL WATER POLLUTION CONTROL ACT)
A unique and massive approach to three of pollution control's
most widespread and important problems is stimulated through
the grants authorized by Section 6. The uniqueness lies in the
Federal support given for actual operational demonstrations by
users of new approaches to common waste treatment problems. The
problems to be attacked are particularly troublesome. Not only
are they widespread, but solutions are complex and will probably
b3 expensive. Furthermore, communities and industries tend to
avoid investment in untried treatment methods.
The three areas involved are: (1) controlling polluted dis-
charges from storm or combined sewers, (2) developing advanced
waste treatment processes and water purification methods and new
joint treatment for municipal and industrial wastes, and
(3) methods for controlling pollution by industrial waste treat-
ment. As innovations, the demonstrations described offer
practical operational-scale examples designed to show effective-
ness and applicability to other users. As experimental ventures,
they will receive Federal support as grants of up to 75 percent
of the project cost, and 100 percent as contracts. The Federal
support will stimulate realistic experiments which will demon-
strate new and improved techniques which otherwise would not be
reduced to practice because of the risk of failure and the sub-
stantial capital investment required.
Under Section 6, projects may be supported by grant or contract
at full-scale under actual field conditions, aimed at achieving
widespread adoption. These activities are an integral part of
the entire research and development program supported under
Section 5. Comment on the substance of the program is found
in that section.
Interest in these demonstrations is evinced by the nature and
extent of participation in these cost-sharing projects. Response
to this program in the past one and one half years has been very
good. Section 6 funds are supporting such diverse projects as
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Chicago's evaluation of the effectiveness of a deep underground
tunnel system to store temporarily excess combined-sewer flows
for return to the sewage treatment plant during off-peak hours.
This project will demonstrate the efficacy of reducing the
discharge of untreated combined sewage to the receiving stream
and minimizing overloading of the waste treatment plant.
Should the method prove economically feasible, the Chicago
Metropolitan planners envision a vast deep tunnel network for
ultimate control of all water in excess of that which can be
handled by its waste treatment facilities.
FWPCA has awarded a grant to Cleveland to demonstrate that an
overloaded sewage treatment plant can improve its effluent
quality by employing polyelectrolytes. The polyelectrolyte
is an additive which destroys the electrical charge surrounding
a particle, permitting the particle to settle out. Based upon
pilot plant runs, this demonstration is expected to show that
a very small addition of polyelectrolytes will increase the
suspended solids removal by almost 50 percent, eliminating any
need for further treatment or plant expansion.
The Pulp Manufacturers Research League is the recipient of
a Research and Development grant to demonstrate full-scale
in-plant concentration and treatment of dilute wastes from
the pulping industry. This project will utilize a mobile
reverse osmosis unit capable of treating 50,000 gallons of
waste per day. Field evaluation will be carried out at each
of six different paper companies, using different waste streams.
The results from this demonstration project should add appre-
ciable information to water pollution control technology of the
pulp and paper industry. These are but a few of the studies
which Section 6 grants are now supporting. FWPCA is constantly
searching for other new ideas and project proposals.
These demonstrations of improved technology are designed to
determine the effectiveness, reliability, and costs of pollution
control processes. Administrators will be able to proceed
with confidence when ordering abatement programs which require
new techniques. The broad application by municipalities,
industries and others of those methods which prove successful
will have an impact and public benefits far exceeding the costs
of carrying out Section 6.
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Existing authorizations expire after FY 1969, the first
year under consideration in this report* The Department will
introduce legislation to extend them in the 2nd Session of the
90th Congress. The importance of these programs, the wide-
spread participation and support evidenced, and the wide range
of technical solutions requiring demonstration, all point to
the need to extend these authorizations. The figures shown
below are estimates of the optimum levels at which each of
these program components could be carried out, based upon
current indications of the range pf technologies requiring
testing and upon response of potential participants. It is
recognized, of course, that authorization levels and actual
appropriations may depart sharply from these estimates, depend-
ing upon timing and amount of emphasis to be given to this
program.
FY
Storm
Sewers
COSTS
(Thousands)
Advanced Waste
Treatment
Industrial
Treatment
Total
1969
1970
1971
1972
1973
$ 8,000
$10,000
$10,000
$ 28,000
60,000
60,000
60,000
60,000
TOTAL
$268,000
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GRANTS FOR WATER POLLUTION CONTROL PROGRAMS
(SECTION 7, FEDERAL WATER POLLUTION CONTROL ACT)
State agencies are the first line of defense in the national
water pollution control effort. During the period 1969-73
their responsibilities will increase as that effort gains
momentum. Increased State capability will be needed to
regulate waste discharges, to supervise construction arid opera-
tion of waste treatment plants, to train plant operators, to
monitor water quality, and to implement the newly established
water quality standards.
Section 7 authorizes grants to State and interstate agencies
to assist in meeting the costs of establishing and maintaining
adequate measures for preventing and controlling water pollu-
tion, including the training of personnel.
In 1963 a study by the Senate Committee on Public Works, "A
Study of Pollution-Water." (Staff Report to the Senate
Committee on Public Works, 88th Congress, 1st Session, Com-
mittee Print), indicated that few States had adequate water
pollution control programs. The need for State program improve-
ment was further highlighted in a study, "Staffing and budget-
ary Guidelines for State Water Pollution Control Agencies,"
done by the Public Administration Service for the Public Health
Service in 1964. Despite recent strengthening and improvementby a
number of States, most State programs are still considered
inadequate, although program effectiveness is difficult to
quantify. Based on FWPCA's review of State program plans for
FY 1968 which considered such factors as State agency authority,
budget, staff, and treatment plant operator certification;
establishment of intrastate water quality standards; water
quality planning activity; and water quality monitoring; only
about one-third of the States are now considered adequate. The
kind and degree of improvement needed varies widely from State
to State. During the next five years, every effort will be
made to upgrade State programs.
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Program grants are also awarded to interstate pollution control
agencies. These interstate agencies, such as the Delaware
River Basin Commission and the Ohio River Valley Water Sanita-
tion Commission, likely will assume a more important role with
a growing emphasis upon basinwide cleanup. In addition, basin
planning grants under Section 3(c) of the Act may lead to the
establishment of new permanent interstate agencies which will
become eligible for continued program support under the program
grants provision.
This program started with a $3,000,000 annual authorization
beginning in FY 1957 which was increased to $5,000,000 per
year in FY 1962. By the end of FY 1967, $40,660,000 had been
distributed to State and interstate agencies as shown in the
following table. This money has helped these agencies hire
qualified people, develop laboratories and other facilities,
and generally increase their pollution control efforts.
The Clean Water Restoration Act of 1966 increased the annual
authorization to $10,000,000 for FYs 1968 through 1971. To
assure the most effective utilization of these increased funds,
the FWPCA issued "Guidelines for Developing Fiscal Year 1968
Program Plans for State and Interstate Agencies." These Guide-
lines set forth the essential elements of an effective program
plan as a basis for receiving the Federal grant. Each agency
applicant must now describe how it will carry out a broader
improved water pollution control program with the increased
Federal grant.
The grant authorization expires in FY 1971. The present
projected cost of carrying out this section of the Act assumes
that the authorization will be extended beyond FY 1971 at its
current level. However, it may prove desirable to increase
this authorization in 1972 and 1973. By that time, a number
of pollution control efforts now underway will be reaching a
peak of activity. If major Federal construction grant (Sec-
tion 8 of this report) support is available, the State agencies
will need to increase their staffs to supervise the expanding
construction program.
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1957
1958
1959
1960
1961
1962
1963
1964
1965
1966
1967
Total FWPCA Grants
for Water Pollution
Control Programs
State WPC
Agency
Expenditures
Interstate
WPC Agency
Expenditures
Total
Expenditures
1,800,000
4,004,501
181,132
5,985,633
2,700,000
N/A*
N/A*
N/A*
2,700,000
6,514,980
370,628
9,585,608
2,700,000
6,755,822
345,232
9,801,054
2,700,000
7,606,088
717,801
11,023,889
4,500,000
8,162,954
835,840
13,298,794
5,000,000
9,277,135
636,021
14,913,156
5,000,000
9,530,490
615,542
1-5,146,036
5,000,000
11,204,986
681,778
16,886,764
5,000,000
12,271,400
702,103
17,973,503
5,000,000
17,642,924
506,333
23,149,257
*Not available
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There will also be an increased need to monitor water quality
and assure compliance with water quality standards now being
established. These combined factors will place a heavy burden
on State and interstate agencies. Evaluation of State program
effectiveness and needs and evolving State-Federal relationships
in the national pollution control effort during the next several
years should provide a basis for determining whether and to what
extent Federal program grants should be increased.
Costs of administering this portion of the Act consist largely
of providing personnel to work with the State agencies in
developing more effective programs. Certain grant processing
costs are also involved. These administrative costs are
included under Section 3(a). Funds required for the grants per
se are projected as:
COSTS
(Thousands)
FY 1969 $10,000
1970 10,000
1971 10,000
1972 10,000
1973 10,000
TOTAL $50,000
GRANTS FOR CONSTRUCTION
(SECTION 8, FEDERAL WATER POLLUTION CONTROL ACT)
Considerable progress was made in 1967 toward defining national
water pollution control goals and waste treatment requirements,
through the development of water quality standards and improved
State program plans. Attainment of these goals will require
continuing large capital expenditures for waste treatment
facilities. Section 8 of the Federal Act authorizes grants to
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State, interstate, municipal and intermunicipal agencies for
constructing the necessary facilities to prevent the discharge
of untreated or inadequately treated sewage or other wastes
into any waters.
In 1956 Congress recognized the need for a cooperative Federal-
State- local effort under the stimulus of Federal leadership
and funds. Since that time, the Federal Government has pro-
vided almost a billion dollars as construction grants for
sewage treatment plants. The resulting facilities now serve
some 62 million people and enhance water quality in 66,000
miles of rivers and streams.
The Congressional amendments of 1965 and 1966 provided for a
vastly accelerated Federal effort and State and local govern-
ments responded accordingly. The previous section discussed
expansions in the State water pollution control programs.
One of the major purposes was to improve the States' capacity
to encourage waste treatment construction where the needs are
most acute. More and more of the States are establishing grant
programs of their own to further stimulate local construction
of waste treatment facilities and to take advantage of the
larger Federal grants authorized, thus sharing the costs. Local
planning groups are increasingly participating in reviewing
proposed sewage treatment construction to ensure conformity with
local and regional needs. Finally, the backlog of grant appli-
cations is an encouraging sign that more and more cities are
now facing up to their responsibilities in controlling municipal
pollution.
A good part of this heightened State and local effort has been
premised on the expectation that Federal funding would go much
higher than recent fiscal constraints allow. But as yet, the
State and local commitment has rot flagged. In fact, present
construction levels have outpaced the proportionately available
Federal grant funds.
To project the amount of Federal participation required in this
important phase of water pollution control, the total needs must
be defined. To control municipal waste discharges and to attain
the water quality levels specified by the water quality stand-
ards implementation plans, waste treatment facilities must be
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built where none exist, improved where they are obsolete, and
enlarged as populations grow. A companion report to this one,
"The Cost of Clean Water " estimates that an $8 billion capital
investment (constant dollars) over the next five years will be
necessary to accomplish these goals.
Under the information currently available Federal participation
at near the maximum amounts set by Congress in the 1966 legis-
lation would be necessary to stimulate capital investment of
this magnitude. Under the Act the Federal contribution can go
as high as 55 percent of the eligible project cost, under cer-
tain conditions. A 35-40 percent average over the next five
years would be a reasonable estimate. Therefore, to overcome
the estimated backlog and meet water quality standards by 1973
would require Federal grants in the range of $2.8-$3.2 billion.
This figure includes only new projects to be started in Fiscal
Years 1969 through 1973. Many projects initiated since July 1,
1966 have received only partial or no Federal funding because
there was not enough money to go around. Under the Act, these
projects are eligible for their full share through FY 1971.
The total estimated requirement for Federal construction grants,
FY 1969-1973, to overcome the backlog of unmet needs and keep
pace with growth during this period, would be approximately
$2.8 to $3.2 billion. The Clean Water Restoration Act of 1966
authorized $450 million for 1968, $700 million for 1969, $1.0
billion for 1970, and $1.25 billion for 1971. In 1968, $203
million was appropriated and the President's budget for 1969
requests $225 million.
In view of the need to greatly accelerate the construction pro-
gram to meet the needs outlined above, the President will pro-
pose a new method for financing the program. The proposed
legislation would authorize the Secretary of the Interior to
enter into long-term contracts with States and municipalities
for the Federal Government to make annual principal and inter-
est payments on the Federal share of bonds raised by localities
to meet total project costs. Bonds raised by localities would
not be tax exempt, but the legislation will provide for an in-
terest subsidy adequate to bring costs to localities down to
the same level as tax exempt borrowing.
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Eligibility under this program would be based on the requirement
that the project serve either' all of a standard metropolitan
statistical area, or an area Of 125,000 people or more. The
proposal would also require a local public body having jurisdic-
tion over the project to establish a system of charges designed
to amortize the cost of the project, including that covered by
the Federal share and, when applicable, the State share, and the
cost of operating and maintaining the project over its life.
This system would enable the local public to provide a reserve
to meet, to the greatest extent possible, future expansion or
replacement requirements of the project. The proposal would
permit the Secretary to waive the charge requirement under
certain limited conditions.
The proposal would require the State to initiate an effective
operator certification program approved by the Secretary by
July 1, 1969. It would also require the State to develop, by
the same date, an approvable statewide plan to improve the
efficiency of treatment works constructed prior to July 1, 1968,
and operating since that date. These last two features would
be conditions for assistance for the grant and contract program.
The proposal would amend the reimbursement provision in the Act
added in 1966. Since the purpose of this provision was to give
retroactive assistance if Federal funds were not available, it
becomes less necessary if the contract authority program is
authorized. Therefore, this authority would be terminated as
of July 1, 1968, although projects already under construction
prior to that date would still be eligible for reimbursement
from State allotments.
If amounts authorized can be made available through the regular
grant program and the contract program, the objective would be
close to attainment. The actual level will be geared to the
ability of communities to respond to a greatly accelerated
program, and prevailing monetary and fiscal policies.
The estimates of need outlined in "The Cost of Clean Water"
are conservative and are presented in constant dollars.
Consequently, any increase in construction costs will increase
the needed Federal support. Also any number of other circum-
stances could further alter requirements and the amount which
must be expended. For example, the development of inter-
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municipal systems and districts could substantially reduce over-
all costs, as well as contribute to more effective pollution
control.
Further, this tremendous investment, large as it is, would not
lead to a respite at the conclusion of the fiscal 1969-73 period.
Population growth and plant obsolescence are continuing factors.
Operation and maintenance costs will continue to rise as more
plants are put in place, and as efforts to improve operating
effectiveness bear fruit. Catching up with basic municipal
waste treatment needs will only ease the pace a bit and prepare
the Nation to move ahead to the next problems, such as facilities
to handle stormwater overflows and the higher levels of waste
treatment which will increasingly be required. This will be
necessary if the quality of water is to be protected in the face
of continued population and industrial growth. Any accelerated
construction program should be accompanied by serious efforts
to improve financing arrangements at the municipal level, to
prepare municipalities to meet these future costs.
Of ever increasing concern is the need to improve this return
on investment in terms of clean water through more effective
operation and maintenance. Performance audits have been made
on grant projects. Although these have given only limited
information on maintenance and operation levels, they have been
sufficiently detailed to highlight the need for improvement in
these vital areas. This is an emerging problem which will
require substantial efforts in order to define more fully the
required operating levels and actual plant capabilities, and
to undertake or stimulate the necessary training, the expert
technical assistance, and the more effective supervision and
certification of operators required to achieve optimum results.
The proposed legislation provides for encouragement of inter-
municipal systems, improved local financing, and better opera-
tion and maintenance.
Pending Congressional consideration of this far-reaching
legislation, only the costs of administering the program
requested in the President's Budget for 1969 and authorized
by the Act for 1970 and 1971 are presented, as follows:
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COSTS
(Thousands)
Grants
Administration
FY 1969
$ 224,000
1,000,000
1,250,000
$ 2,667
4,400
5,300
1970
1971
1972
1973
TOTAL
$2,475,000
$12,367
WATER POLLUTION CONTROL ADVISORY BOARD
(SECTION 9, FEDERAL WATER POLLUTION CONTROL ACT)
Section 9 establishes a Water Pollution Control Advisory Board
consisting of the Secretary of the Interior, of his designee, as
chairman, the Secretary of Health, Education, and Welfare, and
nine representative public members appointed by the President.
The Board advises and consults with the Secretary of the Interior
and makes recommendations to him on matters of policy arising
under the Act. In general, the Board's goals are to provide the
Secretary with useful supplementary information and points of
view on water pollution control and to both shape and reflect
public understanding of the problem.
Over the years, the Board has provided valuable advice to the
Secretary on many important issues. It has also stimulated
public awareness of the pollution problem and of the means for
its control and has championed vigorous national State, and
local control programs.
Over the next five years the Board will continue to respond to
the needs of the Secretary of the Interior. It is impossible,
however, to detail a sequence of its activities covering the
period. Recently the Board has been asked to direct attention
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to the problem of thermal pollution and to the question of the
most effective form of river basin organization for water pollu-
tion control. Increasingly the Board will hold its meetings
outside of Washington, D. C., at the Secretary's suggestion, and
this should heighten its effectiveness.
The costs generated by this section of the Act are for a small
secretariat at headquarters and for per diem and travel expenses
of the Board when in session.
Costs for the Water Pollution Control Advisory Board for FY 1969-
1973 are projected at approximately $90,000 per year. They are
included in the total under Section 12.
ENFORCEMENT MEASURES AGAINST POLLUTION
OF INTERSTATE OR NAVIGABLE WATERS
(SECTION 10, FEDERAL WATER POLLUTION CQNTROL ACT)
All the programs of the FWPCA must be backed up by effective
regulation, through enforcement if necessary. While the States
retain primary responsibility for enforcing pollution control
measures, the Federal Government has a vital role, deriving
from Section 10 of the Federal Water Pollution Control Act.
This section provides for two closely related lines of action:
establishing and enforcing water quality standards for inter-
state, including coastal, waters in conjunction with the States;
and through enforcement actions, securing the abatement of
pollution in interstate or navigable waters, which endanger
public health or welfare.
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Enforcement
Section 10(d)-(k)
The Federal enforcement program, since 1957, has contributed
greatly to abating water pollution. From that time, 43 actions
affecting more than 40 States and the District of Columbia have
been instituted. Many conferences have been reconvened on occa-
sion. The scope and impact of the enforcement conferences are
suggested by those relating to Lake Erie, held in 1966 and 1967.
Representatives of Michigan, Indiana, Ohio, Pennsylvania, and
New York agreed to a far-reaching schedule for abating pollution
in Lake Erie. Some 54 municipalities and 80 industrial estab-
lishments are affected.
In addition to reaching agreement on measures for coping with
municipal and industrial discharges, the State enforcement
authorities have received FWPCA support for their own efforts.
Research and construction needs have been identified, and the
iterim enforcement study projects themselves have developed
valuable new information of general applicability. Perhaps
most important of all, over the years the enforcement confer-
ences in various places have alerted the public to water pollu-
tion problems contributing immeasurably to stronger national,
State and local control programs.
During FYs 1969-73, the enforcement actions currently underway
will continue as necessary to achieve the ends for which they
were initiated. Other actions will be initiated as required.
Legal actions under the Oil Pollution Act, 1924, will also be
forthcoming when appropriate.
The enforcement activity over the next five years will be
affected significantly by the new water quality standards
which vastly strengthen, expand, and even revolutionize the
enforcement capability. There is no way at this time to
predict the extent to which the enforcement authority must
henceforth be applied. Much will depend on how effectively
the States exercise their responsibility for meeting the
water quality standards.
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Nevertheless, FWPCA will need certain levels of resources to
develop information on violations, prepare cases, and pursue
them. These projections are based upon the current level of
activity and on the initial standards experience.
FY 1969
1970
1971
1972
1973
TOTAL
COSTS
(Thousands)
$3,498
5,000
5, 000
5,000
5,000
$23,498
Water Quality Standards
Section 10(c)
By the beginning of FY 1969, the initial water quality standards
setting process should be essentially completed. This will
result from over two years' sustained effort on the part of the
States and FWPCA in which a new tool in the national water pollu-
tion control program was developed from a limited base. Defining
goals, developing guidelines, and reviewing, negotiating and
approving the State submissions—all were involved and difficult
tasks.
As of January 1, 1968, the standards of ten States had been
approved by the Secretary of the Interior. Negotiations have
gone well, in all but a few States, toward meeting the objective
of having standards in approvable form by the beginning of 1968.
In those cases where approvable standards are not developed in
the near future, the Federal Government may have to establish
standards.
When standards are set, the Nation will have, for the first time,
a body of specific goals and objectives for its waters and, in
the implementation plans, realistic means for accomplishing those
goals and objectives. Clearly this will be a landmark in water
resource conservation.
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At this point, the second phase will begin, characterized by the
refinement and attainment of the goals. FWPCA will begin to
seek and observe compliance with the standards. Although States
have first responsibility, FWPCA will continuously review the
extent to which implementation plans are being carried out.
Extensive water quality monitoring by FWPCA as well as State and
other Federal agencies will be important in the review process.
Knowledge gaps discovered in the initial phase indicate a need
for special studies to deal with various technical problems.
Marine waste disposal, salinity, and temperature are three ex-
amples. Also needed is research to improve our judgements con-
cerning water quality requirements. Finally, the water quality
standards will have to be revised and upgraded at such time in
the future as technical knowledge improves and as waste disposal
conditions and water use change.
Attainment of the water quality set in the standards will consti-
tute FWPCA's principal program objective in the future. Accor-
dingly, they will have a heavy impact on how all program resources
are used. Construction, program and planning grants, technical
assistance, research and development, training, monitoring,
planning, and enforcement activities, among others—all will be
directed with the water quality standards goals foremost in mind.
Thus, a good deal of the moneys reported herein under other
sectionsof the Act will be used in carrying out the general re-
sponsibilities defined in Section 10. The costs projected below,
therefore, are the relatively modest and stable sums needed for
checking implementation progress, evaluating the standards, and
coordinating various FWPCA activities in the interest of achiev-
ing the water quality standards goals.
COSTS
(Thousands)
FY 1969
1970
1971
1972
1973
TOTAL
$ 729
1,000
1,000
1,000
1,000
$4,729
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COOPERATION TO CONTROL POLLUTION
FROM FEDERAL INSTALLATIONS
(SECTION 11, FEDERAL WATER POLLUTION CONTROL ACT)
The Federal Government must set an example of leadership nation-
ally by preventing, controlling, and abating pollution from its
own activities.
Section 11 directs all Federal agencies to cooperate with the
Secretary of the Interior, and with State and interstate agencies
and municipalities in preventing and controlling water pollution
caused by Federal activities. Executive Order No. 11288 supple-
ments Section 11 by establishing general standards and procedures
to facilitate Federal agency budgeting for water pollution control
measures.
FWPCA's responsibilities under Section 11 and the Executive
Order include: assisting Federal agencies to clean up pollution
from their facilities; reviewing proposed Federal water resources
projects to determine their impact on water quality; helping
other Federal agencies to include water pollution control stan-
dards in their loan, grant, and contract practices; and assisting
other agencies to prevent pollution from Federal vessels.
FWPCA's program under this section began early in 1966. To
facilitate interagency cooperation and provide a framework for
coordination between Federal and non-Federal agencies, FWPCA has
issued "Guidelines for the Prevention, Control and Abatement of
Water Pollution from Federal Activities." Through its programs
of review and technical assistance, FWPCA has helped develop
water pollution control programs at Government military bases,
hospitals, national parks and forests, post offices, and Federal
vater resource development projects.
Agreements on program procedures have been reached with the
Forest Service, the Bureau of Public Roads, and the Corps of
Engineers. Similar understandings are being worked out with
the National Park Service, the Bureau of Indian Affairs, the
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Bureau of Outdoor Recreation, and the Department of Defense.
These agreements assure that pollution control measures for
facility construction or maintenance will become an integral part
of agency planning.
FWPCA reviewed plans from 16 agencies for improving water pollu-
tion control at Federal installations. As a result of priorities
recommended to the Bureau of the Budget', the FY 1968 Federal
budget included requests for $51 million to upgrade water pollu-
tion control at Federal installations.
All this activity is just the beginning of the continuing effort
which must be strengthened, to indicate that the Federal estab-
lishment intends to put its own house in order. The almost
unlimited activities pursued under Federal loans, grants, and
contracts offer a particularly significant means of exercising
Federal leadership. Section 7 of Executive Order 11288 encour-
ages all Federal agencies to include water pollution control
standards in their loans, grants and contracts.
FWPCA has reviewed reports from 21 other Federal agencies
detailing to what extent their loan, grant, and contract proce-
dures should include such standards. It is clear that there
still are major unutilized opportunities for using the procedure-
for example, to prevent thermal pollution from nuclear electric
power generating plants..
A Department Task Force has comprehensively reviewed the loan,
grant, and contract practices of Interior and other agencies,
and will propose pollution control requirements that might apply
to borrowers, grantees, and contractors. In addition, the Depart-
ment has informed all its Bureaus that Interior is expected to
set an example in this government-wide effort. The Bureaus
have been directed to submit for FWPCA review all proposed regu-
lations for water pollution control. This applies to leases,
licenses, and permits issued by the Department as well as loans,
grants, and contracts.
FWPCA proposes to pursue this program vigorously since it is
essential that the Federal Government set a good example in
water pollution control. Current plans call for control of
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pollution from all existing Federal installations within five
years. Additional staff is nedessary to carry out this program
during FYs 1969-73. Experience to date indicates a need for
more aggressive implementation of Section 7 of Executive Order
11288. This, too, will increase FWPCA's workload.
The cost estimates set out below assume that FWPCA's activities
under Section 11 and Executive Order 11288 will be broadened as
indicated above. The costs are related almost entirely to
providing personnel to work with other agencies in reviewing
their plans and regulations and providing technical assistance
in developing pollution control measures. These costs should
level off once the backlog of existing pollution control needs
is eliminated and the Federal agencies get their control programs
established.
FY 1969
1970
1971
1972
1973
TOTAL
COSTS
(Thousands)
$ 758
1,200
1,400
1,400
1,400
$6,158
ADMINISTRATION
(SECTION 12, FEDERAL WATER POLLUTION CONTROL ACT)
No matter how much money an organization has for its specific
program activities, general administrative strength which enables
funds to be spend wisely is a vital prerequisite to achieving
goals. Under Section 12 of the Act, which authorizes the Secre-
tary of the Interior to prescribe regulations, to engage staff
and to utilize funds to carry out the purposes of the Act, this
administrative strength is being built by FWPCA.
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In its 20 months in the Department of the Interior, FWPCA has
established or is in the process of establishing manpower, facil-
ity and equipment resources, and managerial arrangements to
facilitate accomplishing its objectives. A strong basic cadre
came from FWPCA's predecessor agency in the Public Health Service.
Many of the experienced personnel were members of the PHS commis-
sioned Corps and understandably chose to retain this status.
However, several hundred new employees have been added. Subse-
quently, administrative capabilities have been augmented as
required by expanding program responsibilities. By the end of
FY 1968, certain managerial support provided by the Department
of Health, Education, and Welfare will be handled internally.
Organizational structure has been defined, with regions estab-
lished and headquarters-field relationships delineated adequately
for the present. Procedures for program planning, direction and
control have been formulated.
This is not to suggest that the FWPCA transition is complete and
the new organization in perfect working order. Some problems
remain, but the difficult initial adjustment period is now past.
The need for new arrangements and procedures to fill gaps and
promote efficiency and economy will receive constant attention.
The administrative strength of FWPCA1s regional components will
be raised. Personnel matters are high on the agenda. Scientific
and technical personnel must be added constantly. Professionals
to deal with the social, economic and administrative aspects of
pollution control must also be sought. Generally, the FWPCA staff
capacities will be upgraded through various training and develop-
ment activities. Hopefully, the additional numbered supergrade
positions so vitally needed will be secured.
The costs estimated below include those for overall direction
(Office of the Commissioner), regional directors, program planning
and development, public information, legislative liaison, and
administrative services such as financial, personnel, and facil-
ities management. Other support elements, such as library
services, communications and transportation are also included.
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COSTS
(Thousands)
FY 1969
$ 5,246
1970
1971
1972
1973
5,900
6,200
6,500
6,800
TOTAL
$30,646
NATIONAL REQUIREMENTS AND COST ESTIMATE STUDY
(SECTION 16(a), FEDERAL WATER POLLUTION CONTROL ACT)
As stipulated in Section 16(a), assessment of the nation's needs
and related costs involved in controlling pollution from municipal,
industrial, agricultural, mining, and other sources is essential
to national policy-making. Information has not been readily
available in the past to perform such an assessment adequately.
Even at this point, there is an urgent need to develop analytical
tools and evaluation methods to facilitate a better understanding
of the national needs and related issues.
The initial report, "The Cost of Clean Water," was submitted to
the Congress in January 1968. This marks the first comprehensive
effort by the Federal Government to assess the cost of the national
water pollution control program in terms of bringing water quality
up to the standards established pursuant to the Water Quality Act
If the annual, updated reports are to have maximum utility, infor-
mation gaps regarding needs and costs must be filled. Accordingly,
as future reports are issued, the amount and reliability of the
data will be improved with the introduction of actual State-
approved water quality standards. Information exchange with
State and local planning agencies will be encouraged as will
exchange of program related information from other Federal agencies.
Better methods will be sought to evaluate progress, re-examine
goals, needs and objectives, sharpen projections, and assess
of 1965.
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progress and benefits. Participation df industry, university,
and non-profit organizations will be encouraged through contrac-
tual means to stimulate the highest quality professional interest
in this important national problem solution.
Investigations and evaluations will continue to be pursued across
the range of this section's interests. These include: (1) a
detailed estimate of the cost of carrying out the provisions of
the Act (Section 16(a) provides for preparation of this present
report. This report is prepared as a normal administrative
effort and therefore, not specifically funded in this section.);
(2) a comprehensive study of the economic impact on affected
units of government of the cost of installing waste treatment
facilities; and (3) a comprehensive analysis of the national
requirements for and the cost of treating municipal, industrial,
and other effluent to attain established water quality standards.
The assessment of national requirements and costs must be the
basis for shaping as well as for evaluating FWPCA's operational
programs. As such, the projected expenditures in economic and
related analyses are expected to be a sound investment eventually
showing the way to more effective methods of doing business.
The costs for conducting further analyses and investigations
are expected to be:
COSTS
(Thousands)
FY 1969
$ 202
1970
1971
1972
1973
300
300
300
300
TOTAL
$1,402
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MANPOWER AND TRAINING NEEDS
(SECTION 16 (b), FEDERAL WATER POLLUTION CONTROL ACT)
Section 16(b) directed the Secretary of the Interior to make a
complete investigation and study to determine: (1) the need
for additional trained State and local personnel to carry out
programs assisted pursuant to the Act and other programs for
the same purpose as the Act; and (2) the means of using
existing Federal training programs to train such personnel.
The report on the findings of the investigation was submitted
to the Congress in June 1967, has been published as "Manpower
and Training Needs in Water Pollution Control" (Senate Document
No. 49, 90th Congress, 1st Session), and is described under
Section 5. Its findings are currently being implemented.
WASTE FROM WATERCRAFT
(SECTION 17, FEDERAL WATER POLLUTION CONTROL ACT)
Section 17 authorized a study of the pollution of navigable
waters by watercraft, to be submitted to Congress by July 1,
1967.
This study, "Waste from Watercraft" (Senate Document No. 48,
90th Congress, 1st Session), has been reported to the Congress.
Since the work authorized by the section has been concluded, no
further study costs will ensue. Based on the evidence and
conclusions in the report, legislatioh establishing a compre-
hensive program for. combating pollution from this source was
developed and has been introduced as companion Administration
bills, S. 2525 and H.R. 13923. The bills have been referred
to the respective committees on Public Works. Congressional
approval is hoped for in the Second Session, 90th Congress.
It should be noted, however, that FWPCA is already involved in
vessel pollution problems under other parts of the Act, albeit
in a limited way. Technical assistance and research costs,
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pertaining to work on vessel pollution, have been included in
Section 5.
INDUSTRIAL INCENTIVES
(SECTION 18, FEDERAL WATER POLLUTION CONTROL ACT)
Section 18 directs the Secretary of the Interior to investigate
fully methods for providing incentives which would encourage
industry to construct pollution reduction and abatement facilities
and to report the results of such investigation, together with
his recommendations, to the Congress not later than January 30,
1968.
Since the study has been completed, there will be no additional
costs to carry out this provision of the Act.
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