-------
YESTERDAY
In 1776 Born of a hunger for freedom
n we grew on land and aea and
prospered
•• '• • ¦ •¦ V
- . 3;;. \
-------
"Ours is a nation of affluence. But the technology that
has permitted our affluence spews out vast quantities of \
wastes and spent products that pollute our air} poison \
our waters, and even impair our ability to feed ourselves.
At the same time we have crowded together into dense metro-
politan areas where concentration of wastes intensifies the
problem.
"Pollution is now one of the most pervasive problems of our
society. With our numbers increasing3 and with our incr^sing
urbanization and industrialization, the flow of pollutarf^p
to our airy soils and waters is increasing. This increase d
is so rapid that our present efforts in managing pollutionJ|
barely enough to stay even, surely not JfJ
to make the improvements that mm
, ' needed. "
PRESIDENT JOHNSON K $
-------
TOMORROW
r
OUR NATIONS BICENTENNIAL
l« 1974
Let us dedicate our office now to achieving the
objectives set forth in this report in our
bicentenmal year.
-------
DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
COMPREHENSIVE STUDY
I SUMMARY OFlREPORT
FINDINGS
J U LY 1968
-------
r PRINTING OFFICE: 1966 O—236-078
-------
AOV) DO WE
At.
f * fS*. /
Iri t il %Mii
r - aj
K\>:
• ; :I' ¦
i i ,<"<
r- Vi^t
V-4- •
Jl. .
• m
* rflm.'
Vf ' * I
:,U
P 4 ^J
;,p ..
1 111) (v:
I 1 t *4 u\v
; ^ ¦ <• n
u *
$ ij V
OUR RIVEfcJ
All of the uses and activities
associated with a larqe natural
body of water existinq near a
spreading population center are
found in the Delaware Estuary. They
are as diverse as the population
which rims the borders. Industrial
and municipal water supplies are a
recent addition to the aqe old
utilization of food harvest!nq and
recreation; the Delaware has them
al I .
The major municipalities use
550 million gallons of water each
day. Industrial water use is
nearly 10 times greater being in
the order of 5 billion qallons a
day of which 60% is used in the
production of electric power.
Diverse recreational activi-
ties occur in the estuary; however,
usaqe is but a small portion of the
potential. Participation in water
• contact sports is minimal and can-
not be encouraged because the
estuary waters are a health hazard.
Swimminq does occur sporadically
but the only available public
peaches have been closed for several
years because the water is unsafe.
Approximately 15,000 private
pleasure boats, representinq more
than a $10 million initial invest-
ment, use the estuary each year.
Yet this represents less than 7b%
of the existinq boatinq capacity.
In this instance, greater use is
forestalled by lack of adequate
launching sites and large amount
of floating debris which is a danger
to boats and water skiers. Sport
fishing Is restricted to the upper
-------
For the most part, the
areas suitable for wildlife
and water fowl habitat have
been eliminated along the
upper portion of the estuary
by extensive industrial and
municipal development. There
are still approximately 40,000
acres of suitable tidal marsh
bordering the lower estuary
in New Jersey and Delaware.
These areas are used by water-
fowl primarily for resting
during the Spring and Fall
migration flights although
limited nesting populations
are stiI! present.
and lower end of the estuary and
has an estimated annual value
of $300,000. The mid portion
of the estuary is presently of
such poor water quality that
few fish can survive during
the summer recreation period;
consequently, this area nearest
the population center of the
area is of no value for sport
fishing under present condi-
tions.
From pre-colonial times to
the beginning of this century,
the harvest of edible fish
from the estuary was of major
importance to the economy of
the region. Before 1900,har-
vests exceeded 20 million pounds
per year worth several million
dollars at present prices. Today,
the average yield is about 80,000
pounds worth about $15,000 per
year. Delaware Sturgeon which
once supplied most of the world's
caviar market are now virtually
extinct. Presently the fish of
major commercial importance is
the Atlantic Menhaden which is
valued at $1.4 million annually;
its value however is probably
transitory as new cnemicai
methodology finds better ways
of producing the oil, animal
feed supplements and fertilizer
that the Menhaden now supplies.
-------
WHAT ABOUT ITS
The excellent water quality
existing at Trenton, N. J. deteri-
orates rap.idly once the water
crosses tha riff las and anters tha
estuary. Passing slowly down stream,
the water carries an increasing load
of waste from the bordering indus-
tries and municipalities. Halfway
aown the estuary, deterioration
becomes extreme. In some areas the
dissolved oxygen needed for the
survival of most living organisms
Is almost completely depleted and'
anaerobic production of gas occurs.
The concentration of coliform bacteria
from unchlorlnated municipal wastes Is
extremely high, surface films of oil from
vessels and refineries are common, and acid
conditions caused by industrial discharges
can be noted over half the length of the
estuary. These actions result in a polluted
waterway which depresses aesthetic and
recreational values, reduces sport and com-
mercial fishing, and"has decreased utility
for municipal water use.
Everyday approximately i,000,000
pounds of waste material is poured into
the estuary. Approximately 655? of this
toad is attributable to municipal treat-
ment facilities while the remaining 35$
is discharged directly to the estuary by
.bordering industries.
»
Most municipalities do not disinfect
the wastes which they discharge to public
waters. Consequently, v,ery large con-
centrations of potentially harmful
bacteria are present In the. estuary and
most of the tributary streams.
-------
Abetting this situation by con-
tributing bacteria, offensive solids
and miscellaneous floating material are
the comb.ined storm sewers of the major
cities. Even after effecting the costly
measures detailed here, the comoined
sewers will remain as a source of
aesthetically offensive materials to
the estuary. Additionally, 1,300,000
pounds of acidity flow to the estuary *
each day as the by-product of several
processes.
Most waste sources receive some treatment
prior to being discharged to the estuary. The
efficiency of the various treatment plants
vary considerably, yielding 5056 removal as
an average for everyone. However, to reach
the water quality goals for the estuary, which
are now law, an average removal in excess of
85/f of today's load must be effected. Analyses."
of the anticipated municipal and industrial
growth in the areas bordering the estuary
indicate that the waste load will double by
1975 and will -increase six-fold by 2010. Thus8
if our region around the estuary continues to
grow economically as in expected, provision
must be made to remove 92$ of the waste load
anticipated for I9J5 and 98$ of that projected
for 2010.
There are formidable technological problems
implicit in consistently achieving such high
removals; vigorous planning must continue if
pollution abatement Is going to be accomplished
now and maintained 5n the future.
-------
uIhat can we achieve in Water
The initial steps toward pollution control in the estuary
have been taken. Water quality standards have been adopted and
the reduction required to secure the standards has been specified
for each discharger. After Implementation of the required treat-
ment by each of the waste sources a major improvement in water
quality will occur. Dissolved oxygen, necessary to sustain life
!n most organisms, will be substantially improved.
The Improved levels of dissolved oxygen will provide new
areas for sport fishing and Improve those areas where young fish
grow and mature into adults. The populations of such species as
the menhaden, striped bass, weakflsh, blue fish, and white perch
should increase and benefit both sport and commercial fisheries.
Recreation will increase In the estuary especially in the upper
and lower sections where access Is easier and the aesthetic
factors more pleasing. Water contact recreation In the Phila-
delphia and Camden areas will not be advisable until the waste
which flows to the river from the combined sewers is treated or
eliminated. In addition, the abatement program will provide a
good probability that the several species of fish which migrate
along the Delaware will be able to successfully pass through the
estuary.
Additionally, the appearance of the river will Improve.
Instances of oil patches should be eliminated, floating debris
and trash will be reduced, and the clarity of the water will
Increase with the attainment of upgraded treatment levels.
-------
A most important achievement
is the decision of the cooperating
regulatory agencies that the water
guaiity shall be based on use. If
it is found that the present standards
do not secure the uses desired by the community,
the treatment requirements will be adjusted until
the requisite water guaiity is attained. The Delaware
Estuary community is a leader in this concept that one determines
the use to which a water body is to be put and then determines the
level of treatment reguired to get the water guaiity necessary for the
desired uses. Setting the level of treatment without concern for the re-
sulting water guaiity and possible water uses is ar often used, but archaic,
method of water resource management. It bodes welf for final achievement of
good water guaiity, that the responsible governmental bodies chose to use the
most modern technigues available to formulate a aater pollution abatement program.
Ali^lD
-------
WHAT ARE THE
Picture a long thin fish tank full of water and holding several
fish. Into one end flows a tiny trickle of fresh water while an
equal trickle flows out the opposite end. Over the middle of the
tank a leaky faucet releases a drop of red dye into the water once
every minute and yet no color can be seen In the water. After a
while the leak gets worse and three drops a minute are falling.
Now the water Is slightly red but you can still see the fish; the
condition, while not the most desirable, is tolerable. Time passes,
the leak grows and the drops fall ten each minute. The water Is
quite red, the fish are hidden, in fact, one can't even be sure they
are still there. Something must be done. The size of the tank can't
be enlarged. The small trickle of water flowing in can be increased
but not nearly enough to flush the tank. So, after obtaining the
proper tools, a moderate amount of pressure is applied to the^faucet
and the drops fall again at three each minute, a rate that while not
the most desirable, is again tolerable.
The analogy, while Imperfect, does represent what has happened
in the estuary. The water flowing into the estuary from its tribu-
taries can not be substantially increased. Waste entering the water
has eliminated many of the beneficial uses over much of the estuary.
The waste loads must be reduced and controlled at non-increasing
volumes if the estuary is to be useful for purposes other than trans-
porting waste. The load allocations which have been specified for
each waste source along the estuary were formulated in accordance with
these requirements.
In addition to knowing how much waste must be removed, It is
important to know what the costs will be. Estimates of the cost to
reduce the waste discharged to the estuary were supplied to the
Estuary Study by most of the major dischargers. Each municipality
and industrial firm was requested to anticipate Its waste load in-
creases and estimate the cost of maintaining several waste discharge
levels through approximately 1978.
The cost Information received by the Estuary Study was used as
described below, and Is composed of the cost of construction plus
costs to operate and maintain the treatment facilities for twenty
years.
-------
During the course of'the.Del aware Es+uary Study several
alternative methods of securing the estuarlne water quality
goals were examined. Specifically the options were: I) Uniform
-treatment, In which every discharger performs an equal percentage
removal of waste, 2)- cost minimization which, removes the most
waste for eaah dollar spent on treatment, bul where the percentag
removal may be significantly different for Individual dischargers
and 3) Zoned treatment, for which discharges were grouped by
similarity of geographical location or simllarl+y of manufactured
product. Each of the above methods have specific assets and
liabilities which wbuld affect Its Implementation. The Federal,
State, and Interstate regulatory agencies decided early in'1967 .
that the Zoned Treatment approach Is, for the present, the best
method of securing pollution abatement. At the same time, water-
quality goals for the estuary were agreed upon by the States and
the Delaware River Basin Commission. During the Springof 1968,
these same goals were accepted by the Secretary of the Interior
and thus became Federal Standards. Using the above decisions as
guidelines, the Delaware Estuary Study employed a series of com-
plex formuI at Ions.of mathematical and economic relationships,
called models, to determine the cost of securing the agreed upon
water quality goals.
The costs can be divided Into' three groups-which provide a
more understandable picture of the specific components. First,
there is a large cost associated with not allowing the river to
get any worse, which means, that no Increase In the amount of
waste going to.the -estuary can be permitted. However, the towns
and jndustrles aroufid the. estuary will continue to grow, and
that growth produces more waste; all the waste from the new
growth must be kept out. of the estuary. The cost of protecting
the estuary by removing the new waste produced by the growing
metropolitan area through the year 1980 Is $140 million.
/
/ i
The second part of the cost derives from going beyond step I
We must eliminate new volumes of waste but we must also reduce th
volume that Is presently flowing to the estuary if higher water
quality Is to be achieved. Specifically this rpeans that the
dischargers must raise their level of treatment from the average'
of about 505f, which It is presently, to above 85i. This In. turn
must exceed 90% by 1980. t The co§ts to do this 'for the municipal I
ties and Industries alonn +ho oe+naru '11 —
-------
The third group of expenses Is the supplementary Items.
Several Industries discharge large volumes of acid; control
of these discharges Is estimated at $25 million. If recreation
Is going to be a technical possibility throughout the estuary,
all discharges containing fecal waste must be disinfected.
This includes all municipal waste, all combined sewer-stormwater
discharge, and all Industrial waste containing excretla; the
cost, $30 million. If the water guallty goals are to be met
in the area of Bristol, Pennsylvania, it Is estimated tiat in-
stream aerators will be required to eliminate an oxyqen de-
pression which is not caused by waste discharge; the cost,
$8 million. The debris sweeper is a specialized vessel which
removes large floating Jetsam such as logs and trees from the
estuary. The equipment would be similar to those now In use
in New York Harbor and the Thames Estuary and is required If the
benefits from recreational boating and water skiing are to be
realized; the cost over 20 years, $4 million. The flna' I tern
is a cost of $11 million which Is required by Industry to reduce
the effects of Increased corrosion caused by the higher dissolved
oxygen concentrations of the estuary water.
-------
In summary, these are the costs through 1978 to improve and
maintain the water quality of the Delaware Estuary to a level
which Is felt to be in the best interests of neighboring popu-
lation and of the nation generally.
Mi I I ion
Removal of new waste caused by regional growth $140
Upgrading of present treatmert levels 225
Supplementary costs
Acid control 25
Chlorination 30
Instream aeration 8
Debris sweeping 4
Corrosion Control M_
$443
One additional factor must be considered. The $443 million
are 1964 dollars. Inflation has decreased the value of the dollar
and thus increased the cost of the program to $500 million in 1968
dollars. The trend Is evident, if we procrastinate while the
economy continues to expand, the costs will increase accordingly.
-------
Pollution abatement will protect the area's abundant but not
unlimited water resources, enhance the fish and wildlife population
which inhabit the estuary, and promote the general health and welfare
of the region by providing areas which are safe for water oriented
recreatlon.
It is extremely difficult to determine the benefits of a proqram
to protect or enhance our environment. Some factors lend themselves
to analysis while others do not. For Instance, the costs to treat
water to a quality which is satisfactory for various industrial or
municipal uses are relatively easy to calculate. On the other hand,
how much is it worth to live In a region where the natural streams
run with clear safe water rather than sewage effluent topped by
billows of detergent foam? How much Is It worth to be able to take
the family on a picnic and let the children fish and wade without
fear of contracting diseases from polluted water? The technical
problems are simple compared with making monetary judgments of
aesthetic values. Therefore, the benefit analyses are of two forms.
The quantifiable, from which direct monetary benefit will accrue
because of a change In water quality. And the Intangible benefits
which, although recognized as being of real value in satisfying human
needs or desires, are not measurable in monetary terms.
Determination of the quantifiable benefit Involved the DECS
staff with assistance from non-government professionals competent
in benefit analyses. The present benefits and anticipated future
demands were established for sport and commercial fishing, boating,
swimming, and picnicking. Widely used monetary values for each type
of activity were then employed to yield a range of benefits which
could be reasonably expected with different levels of water quality.
Following the general divisions used In the description of costs,
the benefits are divided Into those that will accrue with present water
quality and the Increase expected after better water quality Is achieved.
-------
The benefits under present water quality are comparable to the
costs of maintaining present conditions. They are dollars which
will be received only if other money Is spent to prevent present
conditions from deteriorating. Benefits from future water quality
are comparable to the cost of improved treatment plus the sup-
plementary costs, i.e., $261 million.
Specifically, the benefits are:
From Increase
Present Attributable to Total
Qua Iity Future Qua Iity $ Ml I I ion
Comm. Fishing
$ <
21
$ 10
$ 31
Recreation
135
240
375
Navigation
7
8
15
Tota 1
$
163
$258
$421
An intangible benefit of this program should be a feeling of
regional pride in being a leader for the country in providing a
clean and aesthetically pleasing environment for the inhabitants.
If this becomes fact, the Industries and municipalities will have
a priceless commodity In the continuing contest to entice to the
area those persons and Interests which cause a region to grow
and prosper.
-------
WHAT CAN We USE FOR
I. The recently distributed load allocations and costs
set forth here are designed for a period of approxi-
mately ten years. Planning should begin now to set
forth the objectives, possible alternative programs,
and methodology necessary to manage the estuary
water quality beyond I960.
2. Advisory Committees were Invaluable In the conduct
of the Delaware Estuary Comprehensive Study. It Is
recommended that the DRBC utilize advisory groups
which encompass industry, sportsmen, conservationists,
the general public, and planning agencies. This will
encourage discussions and dissemination of Information
between the public servants and the public they serve.
As a result, the proposed programs should be closely
tailored to the needs and desires of the community
and be more readily accepted and Implemented.
w
3. The social, technical, and economic Implications relative
to a system of regional treatment plants should be examined.
The Delaware River Basin Commission should investigate the
potential for financing, constructing and operating regional
sewerage facilities where required.
4. The administrative-technological problems Involved in
Implementing new management methodology (e.g., a least
cost solution) should be examined and, hopefully,
solved. While there are sound reasons for choosing
an essentially uniform-treatment policy at present,
ten years lead time should make the same choice for
the future quite beyond what one should expect of a
dynamic area managed by men of foresight and competence«
5t The DRBC should continue and expand the benefit analyses so
that the extent and type of benefits are known and associated
with the geographical areas where they are produced. Such
Information Is required if wise use is to be made of the
as yet undeveloped areas In the estuary.
6< A broad-based surveillance program should be maintained
to examine the load discharged to the estuary, keep
track of the trends In water quality, and serve as
a basis for modifications In the control program.
-------
New access roads and parks and boating facilities should
be planned and constructed so that the benefits deriving
from improved water quality may be used by the public,
who are, in fact, underwriting the costs of the entire
program.
I
8. The economics, hydraulics, ecology, and demography
of the Delaware Bay should be examined so its largely
untapped resources are wisely allocated.
Possible new. methods of reducing the nitrogenous oxygen
demand now present In the estuary should be examined,
developed further, and employed. Success in this may
well prove a relatively Inexpensive method of providing
capacity In the estuary for further economic expansion.
10. After attainment of the new treatment levels, the
combined stormwater overflow discharges will be the
largest source of untreated sewage, potentially harm-
ful bacteria, and trash in the estuary. Future plans
should be developed to eliminate these discharges.
j
The Port of Philadelphia requires the services of a Harbor
Master to regu.late the passage of materials that are
potentially hazardous or detrimental to water quality.
-------
THE STUDY
For three generations pollution of the Delaware has been
self-evident. However, up to now there has never been available
a detailed analysis of that pollution; what It Is, who Is re-
sponsible for It, what might be done, and what it would cost to
abate It.
In 1957-58, at the request of the Corps of Engineers, the
Public Health Service made a preliminary study of pollution In
the Delaware Estuary. This in turn led to the making of the
comprehensive study covered by this report. The study was
begun In 1961 by the Water Supply and Pollution Control Division
of the Public Health Service, now the Federal Water Pollution
¦Control Administration, at the request.of the state and Inter-
state water pollutlon control agencies.
A preliminary report of the findings was published In
July of 1966. The document was used as a guide by the States
of Delaware, New Jersey, New York and Pennsylvania and the Delaware
¦River Basin Commission in establishing water quality standards
which each filed with Secretary Udall before June 30, 1967. More
than a dozen public hearings were held by the River Basin Com-
mission and the associated States before adopting the final
water quality standards for the estuary. In April of 1967, the
four State Governors and the Secretary of the Interior, acting
as the Delaware River Basin Commission, approved water quality
standards for the Delaware Estuary. It is on the basis of this
decision that the costs and benefits In this report have been
developed, in April of 1968 Secretary Udall approved the water
quality standards adopted by the Delaware River Basin Commission
In 1967. In March of 1968 Regulations were approved by the Dela-
ware River Basin Commission to Implement the standards. Waste
load allocations have been developed for each waste discharger
In accordance with the procedure required to meet eacfi state's
pollutlon control schedule.
The technical details of the findings developed by the
staff of the Delaware Estuary Comprehensive Study used to formu-
late this summary are included in a separate volume entitled,
"Analytical Methodology of the Delaware Estuary Comprehensive
Study".
-------
*
0
9
¦1
The Delaware Estuary and location of the Delaware River Basin
-------