FEDERAL WATER POLLUTION CONTROL ADMINISTRATION

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delaware estuary
comprehensive study
summary of the
preliminary report
and findings
DEPARTMENT OF THE INTERIOR
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
PHILADELPHIA, PA.
JULY 1966

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FOREWORD
James M. Quigley,
Commissioner
Federal Water Pollution Contro<
Administration
Department of the Interior

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The Delaware is a dirty river. This was not
always its fate. In August 1609, Henry Hudson
in his log of the voyages of the "Half Moon"
noted that the Delaware is .. one of the finest,
best and pleasantest rivers in the world." Early
settlers wrote home to Europe of the great
abundance of sturgeon in the river and William
Penn made special note of its fish. As recently
as the 1890's, commercial fishing in the Dela-
ware was a $4 million business. The massive
urbanization and industrialization of the twen-
tieth century destroyed commercial fish, con-
taminated municipal water works, and closed
bathing beaches along the Delaware.
For three generations pollution of the Dela-
ware has been self-evident. However, up to
now there has never been available a detailed
analysis of that pollution; what it is, who is
responsible 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 interstate water pollution con-
trol agencies.
This is a preliminary report of that study. Its
authors are the FWPCA engineers, scientists,
and economists who conducted the study, but
it reflects the contributions of numerous local
and state officials as well as hundreds of public
spirited citizens. The cost of the study was
$1.2 million.
This expenditure of money and man power
will be a wise and prudent investment if the
purpose of the study is ultimately achieved.
That purpose is to provide a blueprint for the
enhancement of the waters of the Delaware.
This preliminary report suggests several al-
ternate pollution control objectives for the
Delaware Estuary. The final report will be pub-
lished in the summer of 1967. That report will,
of course, reflect editorial refinements and any
additional views of the reviewing agencies.
Hopefully, it will also contain an agreed upon
set of pollution control objectives together with
a cooperative plan for their full and early
achievement.
mm*

•*. ¦

June 27, 1966
Washington, D. C.

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DEPARTMENT of THE INTERIOR
CONTROL ADMINISTRATION
preliminary REPORT
AND FINDINGS

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SUMMARY
INTRODUCTION
The water quality of the Delaware
Estuary has been a matter of concern
for many years.
During the late 1950's, State and
interstate water pollution control agen-
cies and the City of Philadelphia be-
came increasingly concerned with the
obvious severe pollution of the Dela-
ware Estuary. They requested the Pub-
lic Health Service's Division of Water
Supply and Pollution Control, now the
Federal Water Pollution Control Ad-
ministration, to undertake a coopera-
tive study to develop a comprehensive
program for water pollution control in
the Delaware Estuary under the pro-
visions of the Federal Water Pollution
Control Act. The Delaware Estuary
Comprehensive Study (DECS) was
thus undertaken in late 1961 in coop-
eration with the State regulatory agen-
cies of New Jersey, Pennsylvania, and
Delaware, the Delaware River Basin
Commission, the City of Philadelphia,
and other interested parties. The study
area encompasses the Delaware Estu-
ary from Trenton, New Jersey, to
Liston Point, Delaware, including the
estuarine reaches of its tributaries. A
map of the area is included on page 2.
Three advisory committees helped
to prepare this report. The Policy Ad-
visory Committee included represent-
atives of State, interstate, and Federal
agencies having the legal power to
abate pollution. The Technical Advis-
ory Committee included representa-
tives from agencies and installations
participating in the work of the study
and who were familiar with the tech-
nical aspects of water pollution con-
trol. The Water Use Advisory Com-
mittee was composed of four subcom-
mittees: a) General Public, b) Indus-
try, c) Local Government and Planning
Agencies, and d) Recreation, Conser-
vation, Fish and Wildlife. On all three
committees, over 100 organizations
providing over 200 participants coop-
erated throughout the study.
cmirui
The Delaware Estuary and location of the Delaware River Basin
THE ECONOMIC ENVIRONMENT
AND ITS WASTE INPUTS
The increase in population of the
urbanized areas from 1950 to 1960
ranged between 24 and 51%, al-
though the geographical units that
make up the urbanized areas showed
considerably greater variability. In the
study area, the bulk of the population
is served by municipal waste treat-
ment plants, eight of which discharge
over 90% of the area's discharged
municipal oxygen demanding load.
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During 1964 about 26,000 people
were employed by the major firms
designated as substantial waste dis-
chargers. For the 18 major industrial
waste sources, the estimated dollar
value of output during 1964 was over
2 billion dollars. Later reports will
list the sources and magnitude of
these discharges.
Organic waste loads are usually
characterized by the amount of oxy-
gen needed to stabilize the waste ma-
terial. The total carbonaceous oxygen
demanding waste load discharged to
the estuary during 1964 is estimated
about 1,000,000 lb/day. About 65%
of this discharge is from municipal
discharges and 35% from direct in-
dustrial discharges. Additional oxygen
demands result from a discharge of
nitrogenous material from municipal
and industrial sources (estimated at
about 600,000 lb/day) and an oxygen
demand of about 200,000 lb/day
exerted by bottom deposits of sludge
and mud. These bottom deposits ap-
pear to be the result of settleable
material discharged from storm-water
overflows and from spoil areas result-
ing from dredging operations. They
are also caused by municipal and in-
dustrial waste effluents.
The vast majority of the municipal
waste effluent flows are discharged
without disinfection and consequently
contain large concentrations of con-
form bacteria. Overflows from com-
bined sewerage systems also contrib-
ute bacteria to the estuary during
times of high rainfall.
Several industrial dischargers are
contributing significant quantities of
acidity (estimated at 1,300,000 lb/day
during the summer) to the estuary.
The major portion of the oxygen de-
manding loads discharged to the estu-
ary is released after some waste re-
duction has taken place. During 1964
all municipal sources along the estu-
ary gave at least primary waste treat-
ment (about 30 to 40% removal of
oxygen demanding load) and ranged
up to a 90% removal level. Since
waste reduction at an industrial plant
may involve inplant modification, sep-
aration of cooling-process water, as
well as a number of other techniques
designed to reduce wastes peculiar to
a given plant, the amount of industrial
waste reductions along the estuary
ranges from none (0% removal) to a
high secondary-tertiary level of (92%-
98% removal of "raw" load). During
1964 it was estimated that, overall, the
removal of all waste discharges along
the estuary was about 50% of the
"raw" load.
Population projections in the study
area indicate increases of 30% be-
tween 1960 and 1975, and by 135%
between 1960 and the year 2010. Total
productivity as measured by dollar
value of output would increase by
about 45% between 1964 and 1975
and by almost 400% between 1964
and 2010. It is estimated that 1964
municipal "raw" waste load (about 1.2
million lb/day) will increase by 2.3
times (to 2.8 million lb/day) in 1975
and by almost 5 times (to 6.1 million
lb/day) in 2010. Industrial "raw" waste
loads in 1964 (about .7 million lb/day)
are expected to almost double by
1975 (to about 1.2 million lb/day) and
by 2010 will increase by greater than
6 times (to 4.6 million lb/day) the pres-
ent waste load. Overall, the total mu-
nicipal and industrial waste load prior
to reduction is expected to more than
double by 1975 and to be almost 51/2
times the 1964 load by 2010.
WATER QUALITY	J
The water quality of the estuary at
Trenton, New Jersey, is generally ex-
cellent, but begins to deteriorate
rapidly below that point. From Torres-
dale, Pennsylvania, to below the Penn-
sylvania-Delaware State Line the de-
terioration becomes extreme. As a
result of waste discharges, dissolved
oxygen is almost completely depleted
in some locations and gases from
anaerobic decomposition of organic
deposits are produced regularly dur-
ing the summer. Coliform bacteria
concentrations are very high in this
same stretch of river. Acid conditions
in the river caused by industrial waste
discharges have been observed for
several miles above and below the
Pennsylvania-Delaware State Line.
Surface discoloration due to the re*
lease of oil from vessels and sur-
rounding refineries is a common
occurrence from Philadelphia to be-
low the State Line. Overflows from
combined sewerage systems result in
a discharge of fecal matter and other
offensive solids, floating material, and
miscellaneous flotsam which would
normally be trapped by the treatment
plant. This material in the estuary rep-
resents one of the few remaining types
of discharges that can seriously affect
the aesthetics of the estuary by dis-
charging visible evidence of raw sew-
age. The net result is a polluted water-
way which depresses aesthetic values,
reduces recreational, sport and com-
mercial fishing, and inhibits municipal
and industrial water uses.
Intrusion of salt water from the bay,
while not caused by pollutions! dis-
charges, also imposes a limitation on
municipal and industrial water uses
during periods of extended low flows.
A mathematical modeling of the
Delaware Estuary (i.e., categorizing
the estuary in specific mathematics}
terms for a computer) permitted the ?
evaluation of the independent effects '
of each of the aforementioned wast*
discharges on the present level ot
quality, and afforded an opportunity
to formulate alternative control pro-
grams to achieve specific objective^
This approach required the develop^
ment and application of new tech-
niques of systems analysis, operation
research, and computer utilization
provide a rational basis lor water qua!?,
ity improvement.	t#i
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WATER USE
The amount of surface and ground
water withdrawn by the 35 principal
municipalities in the study area during
1963 was approximately 550,000,000
gallons daily. The Torresdale Water
Treatment Plant of the City of Phila-
delphia was the largest water user,
withdrawing about 200,000,000 gallons
a day from the estuary proper.
Industrial water demand is about 5
billion gallons a day, of which about
98% comes from surface water. Al-
most 95% of this total industrial
demand is used for cooling purposes;
the rest is utilized in processing or for
sanitary purposes. Of any single in-
dustrial type, the electric power gen-
erating plants use the greatest volume
of water, about 3 billion gallons per
day.
Present recreational uses of the
estuary are limited, but include water
skiing, pleasure boating, sport fishing,
and a small amount of unsanctioned
swimming. All of these activities are
severely restricted by poor water qual-
ity and limited access. During 1964-
65, only about 23% of the boating
capacity along the length of the estu-
ary was used, owing to lack of access
ramps and the presence of floating
debris. Fishing was estimated at only
about 8% of possible total capacity
because the only locations where the
water is good enough to hold any
promise of successful fishing are at
the extreme ends of the study area
and therefore at a considerable dis-
tance from the large centers of popu-
lation. The upper area between Tren-
ton and Florence, N.J., a distance of
about 8 miles, is estimated to support
60,000 activity days annually valued at
$135,000. One activity day is a visit
by one person to a recreation area
during any reasonable portion of a 24-
hour period. The lower area from Del-
aware City, Delaware, to Liston Point,
Del., about 7 miles, is estimated to
support 70,000 activity days valued at
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about $160,000 annually. Sanctioned
swimming, as noted, is entirely absent
along the estuary since municipal and
industrial waste discharges make
water contact sports hazardous to
health and aesthetically unattractive.
Shad, sturgeon, striped bass, weak-
fish, and white perch were once com-
mercially important in the study area.
The peak period for the Delaware
Estuary fisheries was between 1885
and 1900; at that time the annual catch
by 4,000 fishermen amounted to 25
million pounds, worth about $4.5 mil-
lion at today's prices. Shortly after
the turn of the century, the annual
harvest plummeted and the decline
has continued. At present, the annual
harvest is approximately 80,000
pounds, worth only about $14,000.
Reasons for this decline are attributed
to (1) industrial and municipal waste
discharges into the estuary which re-
sulted in extremely poor water quality
conditions, (2) improper fisheries man-
agement allowing over-fishing, (3)
introduction of predaceous species
into the upper river, and (4) siltation
(from farmland, suburban develop-
ment, and river dredging operations)
which covered spawning areas and
limited production of fish food organ-
isms.
Recently, the Atlantic Menhaden
fishery has become extremly impor-
tant as a source of oil, domestic ani-
mal feed supplements and fertilizer.
The value of the menhaden from the
estuary is estimated at about $1.4 mil-
lion annually.
The only wildlife associated with the
estuary are water fowl who use the
tidal marshes bordering the river. Vir-
tually all areas where water fowl could
get adequate cover and food have
been eliminated between Trenton and
the Pennsylvania-Delaware State Line
because of extensive industrial and
municipal development. In the lower
part of the study area there are still
approximately 21,000 acres of tidal
marsh in New Jersey and 18,000 in
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Delaware. Water fowl such as ducks,
teal and Canada geese use these
areas primarily as resting grounds
during the Spring and Fall migration
flights, although some limited nesting
populations are present.
		4	
WATER QUALITY IMPROVEMENT
Members of the Water Use Advisory
Committee were queried concerning
possible swimming areas, desirable
fishing locations, community desires
on withdrawal of water from the estu-
any, and industrial desires on water
use. The members of the Committee
were also asked to suggest water
quality criteria for the various water
uses. Based in part on their responses,
possible alternatives to improve water
quality were reduced to five sets of
water use and water quality objec-
tives.
They ranged from maximum feas-
ible enhancement of the river using
current waste treatment technology
(designated Objective Set I) to main-
taining present (1964) levels of use
and quality (designated Objective Set
V). Objective Sets II, III, and IV were
intermediate. The sets delineate
reaches of the river where various
water uses would be made suitable
from a water quality standpoint.
Twelve quality parameters were con-
sidered for each set. In summary, the
five water use/quality objective sets
are:
Objective Set I. This set would pro-
vide the greatest increase in water use
and water quality. Water contact rec-
reation is indicated in the upper and
lower reaches of the estuary. Sport
and commercial fishing were placed
at relatively high levels consistent
with the make-up of the region. A
minimum daily average dissolved oxy-
gen (DO) goal of 6.0 mg/1 is included
for anadromous fish passage during
the spring and fall periods. Thus,
anadromous fish passage is included
as a definitive part of the water quality
management program. Fresh water
inflow control would be necessary to
repulse high chloride concentrations
to Chester, Pa., thereby creating a
potential municipal and industrial
water supply use.
Objective Set II. The area of water
contact recreation is reduced some-
what from that of Objective Set I (OS-
I). A reduction in dissolved oxygen
(DO) is considered to result in a con-
committant reduction in sport and
commercial fishing. DO goals for
anadromous fish passage remain as
in OS-I. Chloride control would be
necessary to prevent salt water intru-
sion above the Schuykill River.
Objective Set III. This is similar in
all respects to OS-II except for the
following three changes. First, the
specific DO criteria for anadromous
fish passage is not imposed. However,
substantial increases in anadromous
fish passage will result from the treat-
ment requirements imposed to con-
trol DO during the summer. Second,
a general decrease in the sport and
commercial fishing potential is im-
posed through a lowering of the DO
requirements. Third, the quality ob-
jectives for municipal water supply are
reduced.
Objective Set IV. This set repre-
sents a slight increase over present
levels in water contact recreation and
fishing in the lower reaches of the
estuary. Generally, quality require-
ments are increased slightly over 1964
conditions, representing a minimally
enhanced environment.
Objective Set V. This set represents
a maintenance of 1964 conditions,
that is, a prevention of further water
quality deterioration.
Four different waste reduction
schemes were evaluated for each set.
These were:
Uniform waste reduction (all
sources treat to the same
level).
Two different configurations of
equal waste reduction by
estuary zones.
Reduction of wastes by munici-
palities and industries as
separate categories.
A program of cost minimization
where all sources are re-
quired to remove wastes in
accordance with location,
expense and magnitude of
load.
Other alternatives such as piping of
wastes out of the estuary area, flow
regulation and instream aeration were
also evaluated. The costs of achieving
the Objectives were evaluated; the
benefits were described and, when
possible, were quantitatively evalu-
ated. This information was provided
to all members of all committees of
the DECS, so that, throughout the en-
tire decision making process, full ad-
vantage could be made of all available
technical information during the for-
mation of a final set of use-quality
objectives.
COSTS
To achieve Objective Set I, which
calls for a summer average dissolved
oxygen level of about 4.5 mg/1 in the
critical zones and 6 mg/1 during the
spring and fall fish runs would require
about 92-98% removal of all carbona-
ceous waste sources plus instream
aeration. An estuary-wide residual of
about 100,000 lb/day of oxygen de-
manding wastes would be allowed.
There is significant uncertainty as to
the ability to achieve these reductions
over the entire estuary. The program
requires large scale utilization of ad-
vanced waste treatment and reduction
processes, which is not deemed tech-
nically feasible at this time. The esti-
mated total (capital and operation and
maintenance) cost of removal to
achieve and maintain this Objective
Set (to 1975-1980) is about $490 mil-
lion. This includes the reduction of
oxygen demanding wastes as well as
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disinfection for bacterial control, but
excludes any cost associated with res-
ervoir storage for chloride control.
The achievement and maintenance
of Objective Set II (e.g. summer aver-
age dissolved oxygen of 4 mg/1 in the
critical sections of the estuary) to the
period 1975-1980 is estimated to cost
between about $230 and $330 million
depending on the particular type of
waste reduction program. An overall
residual load of about 200,000 lb/day
would be allowed resulting in approx-
imately 90% removal of the present
waste load with the distribution of the
load depending on the control pro-
gram (e.g. uniform treatment, zoned
treatment, or cost minimization).
Objective Set III, which is similar in
many respects to Objective Set II,
calls for a summer average dissolved
oxygen of 3 mg/1 in the critical sec-
tions. To achieve and maintain such
water quality objectives to 1975-1980
would cost between $130 and $180
million. About 500,000 lb/day of or-
ganic material would be the allowable
total discharge. This would represent
an overall removal of about 75% of
the present load. The actual removals
for each source would again depend
on the control program.
Objective Set IV, which represents
a minimal enhancement over present
water quality conditions calls for a
summer average dissolved oxygen in
the critical section of 2.5 mg/1. The
estimated total cost of this objective,
including the achievement of all water
quality parameters, ranges from $100
to about $150 million.
It is estimated that the maintenance
of present conditions, OS-V, in the
face of increasing industrial and pop-
ulation growth would cost about $30
million. These total costs are summar-
ized in the following table:
Estimated Costs*
Objective Set Millions of Dollars (1975-1980)
I	460
II	200-300
III	100-150
IV	70-120
* Does not include maintenance
of present conditions—
$30 million.
After the costs and benefits of the
Objective Sets were evaluated the
Water Use Advisory Committee held
numerous meetings and discussions;
and circulated correspondence among
all members of each of the four sub-
committees. Each subcommittee chair-
man was able to arrive at a consensus
which represented at least the gen-
eral attitudes and desires of his group.
The members of the WUAC then met
and arrived at a consensus of Objec-
tive Set III as the final recommenda-
tion of the WUAC to the Delaware
Estuary Comprehensive Study.
A major concern was the role of
anadromous fish passage in Objec-
tive Sets II and III. At this point an
intensive investigation of the waste
control programs of OS-II and OS-Ill
as related to anadromous fish pas-
sage was carried out. Elements con-
sidered were passage period, time and
distribution of passage, estimated sur-
vival rates at different dissolved oxy-
gen levels, fish gender, forecasted
dissolved oxygen profiles, and time
series under various flow conditions
with various waste loadings. These
analyses indicate that during drought
conditions (a one in 25 year low flow
condition) the migrating shad currently
have 20 per cent chance of survival.
Under Objective Set III and a similar
drought condition, it is estimated that
the total upstream migrating shad
would have about 80% chance of sur-
vival. Under OS-II this would increase
to about a 90% chance of survival.
For an average flow year, and present
quality conditions, it is estimated that
the shad have approximately a 60%
survival rate while under Objective
Set III this would increase to 85% and
under Objective Set II to approxi-
mately 95% survival.
To maintain any of the water quality
objectives for the period 1975 to 1985,
it is estimated that the region would
have to spend an additional 5 to 71/2
million dollars per year. These funds
would be required to offset the in-
creases in waste loading as a result of
population growth and industrial ex-
pansion. By 1975 overall treatment
levels to maintain Objective Set III
would approach 90%, and for Objec-
tive Set II would approach 93%, of the
estimated raw waste loads. By the
year 2010, the estimates of waste load-
ings before treatment or reduction are
so large that 96 to 99% waste removal
would be necessary to maintain the
objectives. It appears then, that by
about 1990 additional waste treatment
or reduction by present technology to
maintain a specific objective may
become prohibitively expensive and
other schemes would have to be ex-
amined. These would include, for ex-
ample, water recycling and reuse, the
piping of wastes out of the critical
areas, and the large scale use of me-
chanical instream aerators, all of which
may become more feasible alterna-
tives during the period 1985-1990 than
attempting to achieve even higher
waste reduction levels by classical
means. New technology in waste re-
duction, however, would aid in allevi-
ating the situation.
BENEFITS
The benefits from improved water
quality will be substantial. The pro-
tection of the area's water resources,
including the preservation and en-
hancement of fish and wildlife, and
protection of the region's general
health and welfare through expansion
of recreational facilities would be di-
rectly related to the level of water qual-
ity improvement. At the present time it
is not possible to quantify in monetary
terms all of the benefits that would ac-
crue to a region as a result of a water
quality improvement program. How-
ever, every attempt was made as part
of the DECS to determine those por-
tions of the total benefits that are
quantifiable; the remaining benefits are
described in qualitative terms.
In the area of recreational benefits,
three general categories were con-
sidered: 1) swimming, 2) boating, and
3) sport fishing. The analyses indicate
a tremendous latent recreational de-
mand in the estuary region that to
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2SS|
some extent could be satisfied by im-
proved water quality. It is estimated
that during the period 1975-1980 the
increase in total demand for the whole
region over the present demand
would be about 43 million activity
days per year and by the year 2010
would increase to almost 100 million
activity days per year.
Demand analyses have shown that
the estuary could absorb a significant
portion of this demand. With improved
water quality, new areas would be
made suitable for swimming, for
other forms of water contact recre-
ation, and for such non-water contact
recreation as sports fishing.
In order to compute the monetary
value associated with the demand un-
der each objective set, a number of
factors were considered (e.g., capac-
ity of the estuary, the part of the total
demand that the estuary could be ex-
pected to fulfill, and the application of
monetary unit values to the total par-
ticipating demand). Increases in anad-
romous fish passage would provide an
outstanding sport fishing opportunity
in the basin above Trenton. The size of
the adult migrating shad (4-5 pounds)
that reaches the upper headwaters
makes it an excellent game fish for
sporting enthusiasts; water quality im-
provement in the estuary therefore af-
fects a highly desirable use over 100
miles from the point of control. The
analyses indicate that the increase in
direct quantifiable recreational benefit
in present dollars for Objective Set I
would range between 160 and 350 mil-
lion; for Objective Set II between 140
and 320 million; for Objective Set III
between 130 and 310 million; and for
Objective Set IV between 120 and 280
million. The relatively wide range of
benefit estimates results from the dif-
ficulty of accurately evaluating their
dollar values.
As the water quality improves, a
concurrent improvement in commer-
cial fishing opportunity is expected to
occur. It is estimated, especially for
Objective Sets I, II and III, that there
will be a substantial increase in the
number of anadromous fish, thereby
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¦%

providing an opportunity for increased
commercial fishing. The catch of men-
haden is expected to increase along
with other finfish such as striped bass,
weakfish, and bluefish. Two capacities
of the lower portion of the area will be
improved: a) as a nursery area for
young fish which subsequently migrate
into Delaware Bay and form a large
part of the sport and commercial fish-
ing activity there, and b) as protection
for aquatic organisms which serve di-
rectly and indirectly as food for fish
which are harvested in abundance
elsewhere. For the three categories of
commercial fishing: a) shad, b) men-
haden, and c) other finfish, estimates
were made of the direct monetary
benefits. These show incremental
benefits ranging from about 5 million
dollars (present value) under Objec-
tive Set IV to over 10 million dollars
under Objective Set I.
In regard to municipal water sup-
plies, the major source that would
benefit from improved quality is the
Torresdale Water Treatment Plant of
Philadelphia. It is probable, however,
that monetary benefits in terms of dol-
lar savings and treatment costs at this
plant will be relatively small at all Ob-
jective Sets. There will undoubtedly,
however, be a substantial reduction of
taste and odor problems which will
greatly increase the ability of the plant
to produce a more palatable drinking
water. For industrial water use, posi-
tive benefits will result primarily from
chloride reduction which accompanies
increased fresh water inflow. These
benefits are not included in this sum-
mary. In general, the industrial com-
munity indicates a low degree of
sensitivity to water quality except for
chlorides and dissolved oxygen. For
both of these variables, the location of
the industry, the quality of the estua-
rine intake water, and the industrial
type are all important considerations.
The results indicate an increase in
benefits because of chloride control
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which is not, however, a function of
any waste reduction programs. The re-
sponse from the industrial community
relative to oxygen indicated that if the
DO goes up (usually a benefit for most
other water uses), the cost to industry
increases. This is primarily due to cor-
rosion at higher DO levels. Therefore,
the results indicate a negative benefit
(cost) to industrial water users associ-
ated with increased DO. These nega-
tive benefits (costs) range from 5
million dollars for Objective Set IV to
15 million dollars for Objective Set I.
In addition to the preceding esti-
mates of measurable benefits, there
are numerous other uses that will be
improved as a result of increased wa-
ter quality. However, the nature of
these increases in use is such that
monetary estimates of the benefits
cannot be made. Increased water qual-
ity will improve the value of property
adjacent to the estuary by providing a
watercourse that is more aesthetically
pleasing. Similarly, picnic areas and
parks along the river will be enhanced
due to the presence of a more desir-
able body of water. Increased water
quality reduces the risk of damage to
piers, bridge abutments and vessels.
Finally, the quantitative analyses in
this Summary do not include the in-
fluence of secondary effects on the
regional economy. For example, a
unit of monetary benefit associated
with commercial fishing use might be
expected to generate at least an extra
15% in other benefits due to the
interrelationship between the com-
mercial fisherman and the remainder
of the economy. This may occur in
the form of increased wages, addi-
tional capital investment or increased
use of trades and services.
The above benefit analyses can be
summarized as follows:
For Objective Set IV, which repre-
sents a relatively slight increase in
water quality, the range of estimated
increase in quantifiable benefits is
from 120 to 280 million dollars. As the
objective is raised to Set III, the esti-
mated range in benefits is from 130 to
310 million dollars. A further increase
in water quality to Objective Set II re-
sults in a relatively small increase in
benefits; from 140 to 320 million dol-
lars. Finally, the water uses that are
associated with Objective Set I are
estimated to have a range of quantifi-
able benefits from 160 to 350 million
dollars.
GUIDELINES FOR
IMPLEMENTATION
The successful achievement of any
of the water quality objectives requires
a large scale, well budgeted, clearly
outlined implementation program. The
effort should include 1) an up-to-date
inventory of the various waste loads
to the system as a means of checking
compliance with the requirements of
the program, 2) a continuing estimate
of future trends, and 3) a continuing
determination of the costs and bene-
fits of the control program. The physi-
cal processes that govern the cause
and effect relationships between waste
inputs and water quality should be
continually re-examined. Knowledge of
existing water quality and water use
conditions is extremely important as a
measure of program success and as a
warning of long or short term condi-
tions that might impair proposed uses
and thus require additional waste con-
trol measures. A continual evaluation
of the various waste water alternatives
that are available is necessary. This
requires a thorough investigation and
knowledge of the types of water qual-
ity control mechanisms that are avail-
able, including costs and difficulty of
administration. The evaluation of the
effects of these mechanisms on the
present and future economy of the re-
gion may require investigations.
Implementation can best be accom-
plished through the continued cooper-
ation of all concerned, with the DRBC
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assuming the primary coordination
and decision-making functions for the
region. The FWPCA will continue to
provide forecasting services and eval-
uation of water quality control alterna-
tives, including costs and benefits and
other analytical procedures, passing
on recommendations to the DRBC
through its advisory committees on
policy and technical matters. Similarly,
the States through the DRBC advisory
committees can provide a policy and
technical input as well as bear the
burden of obtaining the basic data on
water quality and waste loads.
ADDITIONAL STUDY
REQUIREMENTS
Although a considerable amount of
detailed investigation was carried out
as part of the DECS, several areas that
were uncovered during the Project
could not be fully pursued because of
time and resource constraints. Investi-
gations of some of these areas were
limited to the specific needs of the
study, and they require further evalua-
tion to fully understand the particular
phenomena.
There are numerous indications at
the present time that additional effort
should be directed to:
1)	Determine the interaction be-
tween the estuary and the bay
so the effect of proposed con-
trol schemes in the estuary
area on the bay could be deter-
mined.
2)	To develop a plan of protection
for present and future commer-
cial and recreational uses of
the bay.
Many water quality problems are
relatively short term and transient in
nature. As indicated throughout the
study, there is a pressing need for spe-
cific DO control during times of anad-
romous fish passage to counteract
periodic undesirable water quality
conditions. The feasibility of large
scale aeration should be evaluated.
This should include investigation into
its costs, effectiveness, possible nui-
sance effects as well as oxygen trans-
fer rates. Other transient water qual-
itly control problems arise from the
accidental dumping of waste material.
Additional study is required to deter-
mine the most effective control meas-
ure or combination of measures that
can be employed under that type of
situation.
Since overflows from combined
sewerage systems are one of the last
remaining violations of the aesthetics
of the estuary, efforts should be made
to initiate a stormwater overflow con-
trol project to experiment with new
methods for intercepting the objec-
tionable material discharged as a
part of the combined sewer overflow.
The region should therefore avail it-
self of the opportunities under Sec-
tion 6 of the Federal Water Pollution
Control Act, as amended.
Further detailed study should be
made of the allocation of the costs
of the water pollution control pro-
gram, including investigation of ef-
fluent charges as a means of distrib-
uting costs and as a means of pro-
viding a constant incentive for the re-
duction of wastes. Because of the
relatively sensitive nature of a study
of this type, a thorough exposition of
all opinions and facts should be an
intregal part of the investigation.
Study is also required to insure
that better water uses made possible
by improved water quality would in-
deed be realized—for example, close
coordination to plan and construct
necessary peripheral facilities (ac-
cess points, parking areas).
Finally, further study is required
concerning the benefits, direct and
indirect, monetarily quantifiable and
qualitatively descriptive of improved
water quality. These studies should
include possible increases in land
valuations as a result of increased
water quality, and values accruing
to the region from expanded recrea-
tional facilities and higher levels of
commercial water based economic
activity.
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