    [From the U.S. Government Printing Office, www.gpo.gov]

              Coastil Zone
               Information
                  Center

                                             THE ROLE OF MARINE  SCIENCES IN THE
                                            MULTIPLE USES OF THE  COASTAL ZONE OF
                                                LAKE ERIE AND LAKE SUPERIOR

                                              NATIONAL PLANNING  ASSOCIATION
                                                      June 1969

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                  1010
                  .N3
      !t          1969

                                THE ROLE OF MARINE SCIENCES IN THE 14ULTIPLE

                           USES OF THE COASTAL ZONE OF LAKE ERIE AND LAKE SUPERIOR

                                          COASTAL ZORN
                                                         CEN
                                                             TER

                                          A Study Prepared  for the

                                     National Council on  Marine Resources

                                         and Engineering Development

                                           Office of the President
                                           Washington, D. C. 20500

                                     Center for Techno-Economic.Studies

                                         'National Planning Association
                                              Washington, D. C.

                                                  June 1969

               This study was financed by a contract with the National Council on Marine Re-
               sources and Engineering Development. However, the findings, recommendations,
               and opinions in the report are those of the contractor and not necessarily
               thoee of the Council, nor do they imply any future Council study, recommendations,
               or position. However, it is hoped that this study will contribute to the full
               discussion of problem areas and issues in marine science affairs.

                                    THE ROLE OF MARINE SCIENCE IN THE MULTIPLE

                             USES OF THE COASTAL ZONE OF LAKE ERIE AND LAKE SUPERIOR

                                         Center for,Techno-Economic Studies
                                           National Planning Association
                                      1666 Connecticut Avenue, N. W., Suite 300
                                              Washington, D. C. 20009

                              Miller B. Spangler, Director, Techno-Economic Studies
                                         and Supervisor, Great Lakes Study

                                       Alexander B. Bigler, Project Manager
                                   and Principal Investigator, Great Lakes Study

                                                Project Consultants

                   .Raleigh Barlowe                            Edward G. Pleva
                   Department of Resource Development          Department of Geography
                   Michigan State University                   University of Western Ontario
                   East Lansing, Michigan                      London, Ontario,Canada

                   Sperry Lea                                  Robert A. Sweeney
                   Canadian-American Committee                 Great Lakes Laboratory
                   National Planning Association.              State University College at Buffalo
                   Washington,D@C.                             Buffalo, New York

                       National Council on Marine  Resources  and Engineering Development
                                              Offic,,@. of the President
                                              Washington, D. C. 20500

                                       Edward Wenk,  Jr., Executive Secretary

                                           David Adams, Proje.ct.Officer

                                         Members of the'Great Lakes Panel
                                     Subgroup to Monitor NPA Great Lakes Study

                   Robert B. Abel                              Philip R. Nelson
                   'Chairman, Great Lakes Panel Subgroup       Branch of Inland Fisheries (BCF)
                   National Science Foundation                 U. S. Department of the Interior

                   Jd@ob H.- Doum                              Craig Roberts
                   Office of the Chief of Engineers            Division of Reactor Development & Tech-
                   U. S. Army Corps of Engineers              'Atomic Engrgy Commisdion          nology

                   Erwin C. Hannum.                            Roland Smith
                   Water Resources Coordinagor.                Bureau of Commercial Fisheries
                   U. S. Department of Commerce                U. S. Department of the Interior

                   Francis D. Heyward                          I. E. Wallen
                   Law Enforcement Division                    Office of Oceanography & Limnology
                   U. S. Coast Guard                           Smithsonian Instituti  on
                        Jim Lee, Chairman, Great Lakes Panel
                        Office of the Assistant Secretary for Health & Scientific Affairs
                        U. S. Department of Health, Education   and Welfare

                                                  TABLE Of CONTENTS

                                                       PART I
                THE ROLE OF MARINE SCIENCE AND TECHNOLOGY IN THE USE OF THE                      Page
                COASTAL ZONE  . . . . .. . . . . . . . . . .

                   Study Objectives       . . . . . . . . . . . . . . . . . .

                   A Review of Institutions and Measures     . . . . . . . . . . .               1-9

                                                      PART II

                PRESENT AND FUTURE USES OF THE COASTAL ZONE                          o         11-1

                   General Description and Inventory of the Coastal Zone   . . . . . . .

                   Major Uses of the Coastal Zone  . . . . . . . . . . . . . . .               11-4

                   Regional Factors. Affecting Use of the Coastal Zone. .         o  . . . .   11-17

                                                      PART III

                REVIEW OF PROGRAM REQUIRE14ENTS TO SUPPORT OPTIMUM USE  . . . . . . .         III-1

                   Water Quality Control  . . . . . . . . . . . . . . . . .                   III-I

                        Overall Environmental Policy  . . . . . . . . . . . . .               III-1

                        Air Pollutinn Control in the Coastal Zone     . . . . . .             III-10

                        Implications for Natural Programs in Water Quality Control    . . .   111-12

                        Measurement of Pollution and Effects  . . . . . . . . . .             111-21

                        Eutrophication and Algal Growth   . . . . . . . . . . . .             111-26

                        Pollution Control and Waste Management by Sources                     111-28

                        Review of Pollution Control Measures   . . . . . . . . . .            111-41

                        Institutional Implications of Water Quality Control Measures          111-54

                        Recommendations for Water Quality Control    . . . . . . . .          111-72

                                                     PART III
                                                    (continued)                                 Page
                   Modifications of the Coastal Zone  . . . . . . . . . . . . .                 111-76

                        Land Fills . . . . . . . . . . . . .                  . . . . . .       111-82

                        Dredging and Excavation  . . . . . . . . . . . . . . .                  111-95

                        Protection against Shoreline Erosion and Sedimentation    . . . . .     111-99

                        Port and Harbor Development   . . . . . . . . . . . . .                 III-101

                   Social and Economic Uses of the Coastal Zone    . . . . . . . . .            111-109

                        Transportation . . . . . . . . . . . . . . . . . .                      111-109

                        Recreation . . . . . . . . . . .. . . . . .                    . . .    111-128

                        Commercial Fisheries . . . . . . . . . . . . . . . .                    111-144

                        Agriculture and Forestry   . . . . . . . . .                          . 111-146

                        Industrial Development   . . . . . . . . . . . .              V       . 111-147
                        Urban Development . . . . . . . . . . . . . . . . .                     111-148

                        Power Development . . . . . . . . . . . . . . . . .                     111-150

                        Water Resources Management  . . . . . . . . . . .. . . .                111-153

                                                    PART IV

               CANADIAN-U. S. COOPERATION IN APPLYING MARINE SCIENCE AND TECHNOLOGY
               TO  14ULTIPLE USES OF THE COASTAL ZONE . . . . . . . . . . . . . .               IV-1

                   Responsibility for Research   . . . . . . . . . . . . . . . .                IV-2

                   Establishment of a Center for Inland Waters.                                 JV-3

                   Research Support . . . . . . . . . . . . . . . .. . . .                      IV-6

                   Coordinatinn of Research . . . . . . . . . . . . . . . . .                   IV-7

                   Cooperation in International Measures.       @. . . . . . . . . .            IV-9

                                                      PART V
                                                                                                Page
               THE NEED FOR DIRECTION IN R&D IN THE  MARINE SCIENCES FOR PROMOTING
               OPTIMUM USE OF THE COASTAL ZONE . . . . . . . . . . . . . . . .                  V-1

                  The Need for Regional Ob�ectives  . . . . . . . . . . . . . . .               V-1

                  The Need for Priority Assessment . . . . . . . . . . . .                      V-1

               APPENDIX A: Summary of Water Quality Control Recommendations.

               APPENDIX B; General Categories of Water Pollution Substances.

               APPENDIX C: Recommendations of the Task Force on Environmental Health and
                           Related Problems.

               APPENDIX D: Summary of Pollution Conteol Legislation for States Contigious
                           to Lake Erie and Lake Superior.

               APPENDIX E: Reference for the International Joint Commission Report on
                           Pollution in Lake Erie, Lake Ontario and the International
                           Section of the St. Lawrence River.

               APPENDIX F: General U. S. Shoreline Use of Lake Erie and Lake Superior 1966.

                                                    PART I

                    THE ROLE OF MARINE SCIENCE AND TECHNOLOGY IN THE USE OF THE COASTALZONE

                                                Study Objectives

                   The National Council on Marine Resources and Engineering Development is de-

              veloping a series of studies of the uses of the various types of coastalXreas in

              the United States. The primary intent of these studies is to assess the effect

              which science and technology and institutional developments have had on the use of

              coastal zone resources and to determine the principles by which these measures may

              be strengthened to contribute even more to the effective utilization of capital,

              manpower, and natural resources in various coastal regions. These analyses will

              develop guidelines for marine research programs and other-decision-making processes

              appropriate to the growing socio-economic activity along the nation's land-water

              boundaries.

                   As part of this effort, the National Planning Association under contract to the

              Marine Sciences Council conducted the current study of the use and management of the

              coastal zone resources of,Lake.-@ Erie and Lake Superior. The major objectives of

              the study are to:

                   *  Review the background studies of factual data about the coastal zone re-
                      sources of the two lakes, their utilization, and the economic and social
                      ends served.

                   *  Analyze the effectiveness of measures employed In the past for determin-
                      ing utilization of coastal zone resources including case studies of sel-
                      ected conflicts.

                   *  Assess the potentials for applying marine science and technology to achiev-
                      ing greater multiple use, or more optimal use, of coastal zone resources.

                   *  Identify and evaluate new or different measures to protect higher level
                      utilization of coastal.zone resources.

                   *  Analyze international problems and opportunities in achieving optimal use
                      of lake waters and lake-bed resources and recommend desirable new measures.

                   The Marine Sciences Council has used the term, coastal zone, with reference.

                                                                                              1-2

               to "that area of the ocean affected by its proximity to the land and that area
               of the land affected by its proximity to the sea."' The National Commission on

               Marine Science, Engineering, and Resources for the purposes of the proposed coastal

               management system considers the coastal zone to include: "(1) seavard, the terri-

               torial sea of the United States and (2) landward, the tidal waters on the landward

               side of the low water mark along the coast, Great Lakes, port and harbor facilities,

               marine recreational areas, and industrial and commercial sites dependent upon the
               seas or the Great Lakes." 2  The Commission further suggests that the landward extent

               of the coastal zone be defined by each respective coastal state. In this regard, the

               Marine Sciences Council has defined the coastal zone in the Great Lakes Region as
               extending to the "interior limits of counties reflecting marine influence"3, which

               for the most part includes the counties immediately adjacent to the Great Lakes,

               and also includes the entire surface of the lakes to.the limit of U.S. jurisdiction.

                    For purposes of this study, the coastal zone of the Great Lakes has been viewed

               from two aspects. First, the overall planning study area has included the Great Lake

               Basin as defined by the drainage basin of the lakes. This is a convenient overall

               study reference point particularly due to the fact the Great Lakes Basin Commission

               has established a regional planning program on this basin -- as will be discussed

               later -- and because most of the drainage basin boundary is within 50 miles of

               the lakes' shoreline. This larger planning area definition was subject to flexible

               interpretation to allow consideration of broader regional factors influencing the

               various uses of the coastal zone. The second level of concentration -- and the most

               significant in terms of this study -- Is the narrow band around the shoreline of

               LW,,,e Erie and Lake Superior definel on the landward side by significant physicail
               lSeminar - Multiple Use of the Coastal Zone, National Council on Marine Resources
                and Engineering Development, Williamsburg,Va., November 13-15, 1968, pp. 6-7.
               2Our Nation and the Sea: A Plan for National Action Report of the Commission on Ma-
                rine Science,Engineering & Resources, Wash.,D.C  *, @anuary 1969, P. 51.
               3Marine Science.Affairs, National Council on Marine Resources & Eng.Development,
                Washington, D.C. January 1969,prp. 6-7.

                                                                                           1-3

               features or social and economic conditions that clearly delimit the direct marine-

               oriented activities. For statistical purposes, the counties and metropolitan areas

               adjacent to Lakes Erie and Superior were considered as part of the coastal zone;

               but otherwise)the narrower connotation was applied. For instance, super highways
                                                                                   hundred
               along the shoreline of Lake Erie falling only a few feet to several/yards from the

               shoreline have a "china wall" effect of dividing the hinterland from the coastline

              .-proper, virtually preventing marine-oriented activity from being established on the

               landward side. On the other hand, a high-rise apartment building in Buffalo or

               Detroit located some distance away from the shoreline but which commands high rents

               for the advantage of viewing the panorama of the lake and urban waterfront was not

               dismissed from being directly involved with the coastal zone environment.

                     Objectives for Optimum Use of the Coastal Zone of Lakes Erie and Superior

                   The term "optimum" use of the coastal zone implies a use characterized by the

               best or most favorable in terms of degree, condition, or amount of use. The terms

               "best" and "favorable" require a notion of values upon which to gauge the uses of

               coastal zone resources. These values are expressed in the form of goals, and ob-

               jectives, and which make.: the setting of these an important prerequisite step in

               planning for the optimum use of coastal resources.

                   Objectives for the optimum use of the coastal resources of Lakes Erie and

               Superior may be derived from three levels of interest:

                   (1)  The national interest, in terms of the intent of Congress in declarIng

                        the policy and objectives for the development of marine resources through

                        the Marine Resources and Engineering Development Act of 1966 (PL 89-454)

                        and as further elucidated by the Marine Sciences Council and the National

                        Commission on Marine ScIence , Engineering, and Resources for the develop-

                        ment of the coastal zone.

                                                                                            1-4

                     (2) The overall development objectives of the Great Lakes Region, which

                         under the terms of the Water Resources Planning Act and as expressed

                         by the Great Lakes River Basin Commission, substantially overlap the

                         maritime coastal zone.

                     (3) Specific objectives for potential new or expanded uses of coastal re-

                         sources reflecting the above purposes and objectives, as may be identi-

                         fied by the present study.

                     A brief review of these levels of objectives is an appropriate introduction

               to stating the rationale and value judgments which are already a matter of official

               commitment and policy and as these reflect on the definition and interpretation

               of optimum use of the shoreline and waters of Lakes Erie and Superior. Further-

               more, it is upon these higher order objectives that criteria and rationale will be

               developed to assess and give priority to alternative measures for achieving opti-

               mum use of coastal resources.

                     In a declaration of policy and objectives, the Marine Resources and Engineering
               Development Act of 1966 Congress espoused the following position:1

                     SEC. 2. (a) It is hereby declared to be the policy of the United States to
                     develop, encourage, and maintain a coordinated, comprehensive, and long-range
                     national program in marine science for the benefit of mankind to assist in pro-
                     tection of health and property, enhancement of commerce, transportation, and
                     national security, rehabilitation of our commercial fisheries, and increased
                     utilization of these and other resources.

                            (b) The marine science activities of the United States should be
                     conducted so as to contribute to the following objectives:

                                 (1)  The accelertted development of the resources of the marine
                                      environment.

                                 (2)  The expansion of human knowledge of the marine environment.

                                 (3)  The encouragement of private investment enterprise in ex-
                                      ploration, technological development, marine commerce, and
                                      economic utilization of the resources of the marine environmer

               The Act specifically includes the water resources of the Great Lakes within the de-
               finition of "marine" resources.

                             (4) The preservation of the role of the United States as a leader
                                  in marine science and resource development.

                             (5)  The advancement of education and training in marine science.

                             (6)  The development and Improvement of the capabilities, perform-
                                  ance, use, and efficiency of vehicles, equipment, and instru-
                                  ments for use in exploration, research, surveys, the recovery
                                  of resources, and the transmission of energy in the marine en-
                                  vironment.

                             (7)  The effective utilization of the scientific and engineering re-
                                  sources of the Nation, with close cooperation among all interested
                                  agencies, public and private, in order to avoid unnecessary du-
                                  plication of effort, facilities, and equipment, or waste.

                             (8)  The cooperation by the United States with other nations and groups
                                  of nations and international organizations in marine science ac-
                                  tivities when such cooperation is in the national interest.

                    While the Act provides the guidelines which a national marine science program

               should takei for the most part, it leaves to the Executive Branch those aspects of
                                                                                            establish
               goal formation which delimit how far programs should be carried and which/priorities

               in allocating national resources among various marine programs or between marine

               and other national programs.

                    Under the terms of the Act, two bodies were established: A National Commission

               on Marine Science, Engineering and Resources, and a National Council on Marine Re-

               sources and Engineering Development (Marine Sciences Council). The Cormission on

               Marine Science, Engineering and Resources was,established as an independent advisory

               tody and given the mandate to: (1) determine the Nation's stake in the development,

               utilization, and preservation of our marine environment, (2) to review all current

               and contemplated marine activities and to assess their adequacy to achieve the na-

               tional goal$ set forth in the Act, (3) to formulate a comprehensive long-term

               national program for marine affairs designed to meet present and future national

               needs in the most effective possible manner, and (4) to recommend a plan of govern-

               ment organization best adapted to the support of the program and to indicate the

                                                                                          1-6

               expected costs.

                    The Commission has rec   ended to the President and to Congress a plan for

               national action and for orderly development of the uses of the sea, with a National

               Oceanic and Atmospheric Agency (NOAA) and strong national support of the establish-

               ment of state coastal zone authorities with primary responsibility to carry out spec-

               ified national objectives for management of the coastal zone. Of particular impor-

               tance to the Great Lakes, the Commission called for a Great Lakes Restoration

               Feasibility Test as one of a series of National Projects recommended for priority

               attention in stimulating and supporting the advance of marine science and technology

               and uses of the sea. The Commission recommended that NOAA launch such a National

               Project to explore the techniques of water quality restoration for the Great Lakes;

               and once feasibility has been established, the Federal Water Pollution Control Ad-

               ministration -- in cooperation with the International Joint Commission -- should
               assume responsibility for implementation.2

                   The Commission on Marine Science, Engineering and Resources in its report

               Our Nation and the Sea contains a comprehensive range of recommendations for manage-

               ment and use of the coastal zone. The Restoration Feasibility Test is mentioned

               here because of its significance toward identifying priority for improving the

               quality of water resources in the coastal zone and which,as will be discussed in

               Part 111, is of particular importance to Lake Erie and,to a lesser extent, Lake

               Superior. Many other recommendations have relevance to the Graat Lakes but whict,

               have not been reviewed individually in this report since these are adequately pre-

               sented in the Commission Report and have common significance for Lakes Erie and

               Superior.

               Our Nation and the Sea. op. cit., P. vi.
               2
                Ibid.., pp. 77-78.

                                                                                            1-7

                    The Marine Sciences Council acting as a cabinet level advisory body on the

               marine sciences to the President has endorsed the following general objectives
               for assisting in promoting the opt imum use of the coastal zone:1

                    *  Strengthen planning and decision-making processes that rely on the expertise
                       and knowledge of the coastal states, including the Great Lakes states, and
                       are responsibleto national as well as local needs.

                    *  Expand the structure for consideration of multi-state issues in coastal
                       zone planning and management,

                    *  Broaden Federal policies and programs -- without supplanting state autonomy
                       and responsibility -- to encourage the states to develop and carry out pro-
                       grams of planned use of the coastal zone in the national interest.

                    * Develop new mechanisms for acuqiring, analyzing, and distributing manage-
                       ment information and environmental data concerning the coastal zone.

                    More specifically (but on a national scale), the Council has recommended that

               the concerned Federal agencies take further steps in six areas to carry out the above
               policy intensions for optimum use of the coastal zone:2

                    (1)  Strengthening policy planning, coordination, and development by defining
                         the national interest in the coastal zone more clearly and encouraging
                         enunciation of national goals and objectives in coastal zone development
                         by both the Executive and Legislative Branches; strengthening coordination
                         of Federal agencies in the review of proposed coastal zone alterations;
                         broadening studies of factors that influence land development in the
                         coastal zone, possibly by a multi-disciplinary panel of specialists on
                         coastal zone development available for consultatiion with the states; and
                         filling present planning gaps for making mass coastal recreation avail-
                         able near large congested coastal areas and identifying policy gaps in
                         harbor waterfront restoration.

                    (2)  Resolving legal and other questions related to coastal zone property,
                         boundaries, and use by clarifying the effect of man-made offshore struc-
                         tures on Federal-state boundaries; accelerating the delineation of do-
                         mestic submerged land boundaries; and continuing efforts to minimize
                         coastal interference between defense and other uses.

                    (3)  Assisting commercial and sport fisheries,by examining the adequacy of
                         laws governing commercial fishing between the seaward boundaries of the
                         states and the limits of national jurisdiction; developing a model, sci-
                         entifically-based state law governing comercial fishing activity for

               Marine Science Aff2,irs, January 1969, p. 74.

               Marine Science Affairs, Ibid.,.pp. 74-76.

                                                                                           1-8

                         consideration by the states in meeting problems unintentionally induced
                         by archaic conservation measures; and developing a better system for
                         collecting, processing, and disseminating statistics on commercial and
                         sport fishing.

                    (4)  Enhancing recreational and other uses of the coastal zone by assisting the
                         states in developing model legislation on coastal zoning; promptly iden-
                         tifying high-value coastal areas essential for public use and consider-
                         ing a moratorium on disposal of "surplus" Federal land in the coastal
                         zone; and seeking legislation to expand beach erosion and hurricane pro-
                         tection programs.

                    (5)  Maintaining the quality of coastal waters by enforcing water quality stan-
                         dards and other relevant laws to prevent further degradation of coastal
                         waters; controlling ship-induced pollution in harbors and coastal waters;
                         accelerating research to determine the significance and duration of the
                         effects of major oil spills on marine animals and recreation; and de-
                         voting increased attention to reducing pollution from insecticides, her-
                         bicides, and fertilizers.

                    (6)  Encouraging research, education, and information development and dissem-
                         ination by establishing coastal preserves for ecological research; estab-
                         lishing a central data bank for information and scientific data on coastal
                         zone activities and conditions; encouraging training of coastal zone plan-
                         ners and managers under the Sea Grant Program; evaluating the need for a
                         National Institute of eoastal Zone Studies; preparing a handbook to serve
                         as a guide for local coastal zone development; developing information and
                         legislation on preserving public access to the coast; and encouraging ex-
                         panded research programs to quantify environmental effects of estuarine
                         and coastal pollution.

                   The Marine Sciences Council has also recognized the importance of state govern-

              governments being the focal points for planning and managing activities in the

              coastAl zone with the Federal and local governments supporting the states in carry-
              ing out this responsibility.1

                   The Great Lakes provides the most forceful example of the interstate character

              of a coastal zone region. In the Great Lakes Basin, cooperative mechanisms for co-

              ordination of activities within the coastal zone are found in various forms of re-

              gional organization which are discussed later in this section. It is in these

              astivities in the coastal zone that the Marine Sciences Council views marine science

               Marine Science Affairs, 1969, p. 74.

                                                                                          1-9

               and technology as tools to assist in accomplishing the above explicit goals and

               tasks predicting possible inadvertent harmful effects of coastal zone uses, re-

               ducing construction costs so as to add to the range of choices for optimum use(s)

               and programs and in evaluating costs and benefits to facilitate the task of making
                                                   1
               choices for theseuses and programs.

                    In the present study, attention will be focused on delineating policy issues

               and activities for optimum use of the coastal zone with special concern for marine

               science affairs or developmental objectives that are particularly germaine to the

               coastal zone resources of Lakes Erie and Superior and the institutional problems in

               optimizing their use., It should be added that concentrating the study on these two

               lakes provides an economy of effort versus a similar study involving all five of

               the Great Lakes. It also provides the widest range of conditions or coastal zone

               resource problems. Lake Erie is the most polluted i    densely populated, and in-

               dustrialized of all the five lakes within the coastal zone region; whereas, Lake

               Superior -- with a few important exceptions -- is the least polluted and least

               developed of all the five lakes within the coastal zone region.

                                        A Review of Institutions and Measures

                   A host of public agencies have various interests and activities in the Great

               Lakes Region ranging from direct operational responsibilities in the region of the
               lakes proper to a somewhat casual interest in Great Lakes affairs.2  A large majority

               of the cities and unincorporated urban areas situated along the U.S. shoreline of

               Lakes Erie and Superior have been visited during a field trip by the authors in

               preparation for this study. It should be noted that most of the larger cities and

               1
               Marine Science Affairs, March 1968, p. 63.
               2
               A parallel study activity of the Marine Sciences Council currently in progress is thf
               of developing a compendium of these Institutions including brief descriptions of
               their responsibilities, authorities, interests, and addresses.

                                                                                               1-10

       or      sounties have agencies dealing with planning, public works,    port and harbor develop-
               ment and operation, and waste management and water treatment plants. It is highly

               important that local jurisdictions be considered in evaluating requirements for

               coordination with state, regional, andnational development programs and in a more

               meaningful definition of objectives and programs for an optimal use of the coastal

               zone of the Great Lakes. To this end, officials of a number of city and county

               agencies were interviewed-and much valuable information and useful insights were
                                                                                                        V1141
               obtained.                                                                                   JJ

                    In addition to public agencies, there is a wide variety of private nonprofit,

               professional, and special-interest organizations which have an interest in the use

               and management of the resources of the Great Lakes Region. The interest of some of

               these organizations may be limited to more or less sporadic attention as when a pro-

               fessional society conducts a symposium or publishes journal articles concerning the

               application of its discipline to  Great Lakes problems. Still other organizations

               may be directly involved in Great Lakes affairs on a continuing and concerted basis.

               Among these is the Great Lakes Foundation which is concerned with basic research

               in the Great Lakes and closely.monitors such activities and cooperates with both

               industry and government in encouraging research in areas felt to be covered iliade-

               quately. A third group of organizations includes the National Association of

               Counties, National League of Cities, and Council of State Governments and is likely

               to be interested in the evolution of institutional arrangements in the Great Lakes

               Region which affects their representative interests from a national viewpoint. The

               American Institute of Planners, the Council of State Planning Agencies, and the

               American Institute of Public Administration might likewise be interested in the

               measures which affect the planning and decision-making process.

                    Even though the list of such organizations approaches excessive length, it would

               indeed be a more difficult task to discern from the vast number of conservation,

               scientific, and professional organizations in the United States and Canada the ones

               that would have no interest in, or contribution to make to, the effective utilization

               of the coastal resources of the Great Lakes. A few agencies have been selected for

               analysis to determine how they might best be used in developing and implementing

               institutional and technological measures.

                    Two examples may be cited which suggest some of the implications which may be

               expected to emerge from analyzing the roles of these private organizations. The

               joint sponsoring of the Great Lakes Water Resources Conference in Toronto, Canada,

               in June 1968 by the American Society of Civil Engineers and the Engineering Institute

               of Canada is an excellent example where ideas and information may be exchanged

               without the            r "institutional" constraints sometimes encountered in formal
                           .program o

               operating procedures of government and industry. Such conferences provide a vehicle

               for the exploration of problems and opportunities and the expression of opinions or

               recommendations for action from a professional viewpoint -- that is, as much as

               possible without the interest biases of the aforementioned programs and institutions@

               For instance, in the proceedings of this conference, a series of recommendations

               were presented calling for a comprehensive plan for the staged development of the

               water resources of the Great Lakes and related land uses, including the establish-

               ment of understandable goals, a viable character in the face of changing socio-

               economic requirements and improving technology and other fundamental bases which

               too often are overlooked in the fanfare of announcing new organizations and schemes.

                    A second example involves special interest groups which play a particularly

               1
                MacLaren, J.W.; and Clevenger, R.F., "New Requirements in Water Resources Planning
                on the Great Lakes", Proceedingg of the Great Lakes Water Resources Conference,
                The Engineering Institute of Canada, and the American Society of Civil Engineers,
                Toronto, Canada (June 24-26, 1968). pp. 376-377.

                                                                                           1-12

               important tole in organizing the expression of their position in response to the

               challenge of competitive uses of resources. The commercial and sport fishing in-

               terest is,an example of groups which air similar policy positions for their respec-

               tive industries. in the battle against pollution, but frequently take opposite posi-

               tions with respect to fishery management. This example also demonstrates the place-

               ment of different relative emphases between the applications of science and tech-

               nology and institutional arrangements in developing ways and means to reach solutions

               to problems. The ability to solve problems of bio-degradation by pollution will de-

               pend a great deal on the development of ne-w technology to bring the task of poMution,

               abatement within achievable ranges. Anti-pollution technology may be necessary but

               not sufficient; in which case, strong institutional forces may be required to im-

               plement the new technology. The reconciliation of fisheries management issues be-

               tween commercial and sport uses may require initial emphasis on institutional ar-

               rangements, such as those reflecting certain economic and political conditions. The

               latter may still require.scientific information as a basis for judgment as well as

               the development of special technologies for unique management or harvesting prac-

               tices; however, the problem-solving process in this case gives major emphasis to the

               institutional arrangements involved.

                    In sum, it is important to consider both institutional and technical aspects in

               develORing strategies for problem-solvina measures.

                    As might be expected, thevarious academic institutions engaged in Great Lakes

               research activities concentrate almost entirely on the physical sciences. Although

               there are some related studies, such as recreation, land and water use inventories,

               economic analysis associated with a particular development program, the excellent

               research capabilities of the Great Lakes colleges and universities in the social

               sciences including economics, business management, law, political science, planning,

                                                                                           1-13

               and architecture appear to be underutilized in the planning studies related to the

               coastal zone resources of nearby regions. Research in social science subjects could

               provide an essential and valuable contribution to exploring institutional and techno-

               sociological implications of measures.for optimum use of resources of the coastal

               zone. The National Sea Grant Program provides an excellent means of eliciting and

               strengthening social sciences in marine science affairs in the Great Lakes as well

               as other coastal regions.

                    Academic institutions in the Great Lakes Region will continue to play an im-

               portant role in meeting the manpower training and educational requirements for the

               continuing growth of the region. Steps to provide the incentive and assistance to

               colleges and universities to conduct research in the physical and social sciences

               and to fulfill the educational requirements related to regional growth factors as-

               sociated with marine science and technology would be an important part of institu-

               tional arrangements designed to encourage the optimum use of the coastal zone.

                    Unlike the lengthy coastal regions along the Atlantic, Gulf, and Pacific Coast

               states, the Great Lakes Region has. long been identified as a contiguous geographic

               unit. Problems and potentials for development in this Great Lakes Region have common

               aspects which have stimulated regional approaches to solution and exploitation by

               various institutions through the Great Lakes states. A review of the research,

               planning, and management activities of certain regional agencies would provide the

               broadest insight into the use of human, capital, and physical resources and into

               the activities of Federal, state, and local agencies. Additionally, regional agen-

               cies for the most part have an objective for establishing a framework for'coordina-

               ting with the agencies of the different levels of government which have interests

               and activities directly or indirectly related to their purpose. Of the many govern-

               mental agencies at the Federal, state, and local levels which recognize certain commo

                                                                                          1-14

               regional interests,'three organizations, in particular, stand out as having broad

               and substantial responsibilities for dealing with regional development and resource

               management problems in the U.S. portion of the Great Lakes Basin. For the above-

               stated reasons, the Great Lakes Basin Commission, the Upper Great Lakes Regional

               Commission, and the Great Lakes Compact Commission have been selected for review.

               There are also other important regional bodies, such as the Great Lakes Fisheries

               Commission and the International Joint Commission, which have been established to

               resolve certain specific regional problems of an international nature.

                    The main problem associated with a "regional approach", particularly in the

               Great Lakes area, is that the present political jurisdictions of local and state

               governments are not organized in size or boundary configurations to deal effectively

               with common economic and physical problems. Indeed, if one considers the largest

               region of the Great Lakes as being defined by a common water drainage basin, it is

               obvious that economic, industrial, climatic, and demographic considerations would

               yield a number of subregions of varying sizes and configurations. Therefore, states,

               local governments, and Federal agencies are finding it necessary to re-structure

               or re-orient their particular functional responsibilities along regional lines which

               transcend existing jurisdictional boundaries. This broader outlook is requiring

               the development and initiation of regional governmental institutions in order to

               plan and execute programs. In this regard, the three above-mentioned U.S. regional

               agencies have in common comprehensive planning mandates, advisory authority, and

               active programs in promoting cooperative solutions to regional problems, including

               those of the coastal zone but not limited thereto.

                    Although the scope of these regional agencies is comprehensive in nature, the

               main distinguishing characteristic of their respective activities lies in the pur-

               poses underlying the mandates by which they were established. The Great Lakes

               Compact Commission was the first of these to be established (1955) and reflects the

               interest of the state governments around the Great Lakes to reconcile conflicts and

               cooperate with their common interests in the use of water and related land resources

               of the region. The Great Lakes Basin Commission was created in 1967 under Federal

               mandate to enable state and Federal agencies to plan for the cooperative use of the

               water resources in the Great Lakes Region. The Upper Great Lakes Regional Commission

               was also established in 1967 under Federal mandate to attack some of the problems

               associated with the economic lag of the northern portions of the region, of which

               water resources is one aspect of the problem.

                    The main authority or ability of these three U.S. regional agencies to control,

               or otherwise affect, the use of resources in the Great Lakes Region lies solely in

               their ability to influence the activities of the participating agencies and juris-

               dictions which have planning and management authority over the use and development

               of resources within their respective areas. This influence is primarily exerted

               through the coordination of planning and study activities and through the effect of

               regional recommendations on the respective actions and budget processes of the coop-

               erating-participating agencies in these regional organizations. The emphasis on

               technical and financial assistance rendered by these regional organizations has

               relatively limited influence on the activities of the participating agencies, par-

               ticularly towards regional objectives identified by the regional agency. This

               suggests the need for a strengthened role of a Federal agency dealing primarily with

               marine science affairs or programs.

                    The two international organizations -- the International Joint Commission (1909)

               and the Great Lakes Fisheries Commission (1955) -- were established jointly by the

               United States and Canadian Governments to deal with the use and management of water-

               related resources which exist in a state of dynamic flux across the boundary between

                                                                                           1-16

               the two nations. The IJC has the authority to review and approve any structure or

               use of water which affects the flow of water across the U.S.-Canadian boundary. The

               Great Lakes Fisheries Commission was established to develop recommendations to en-

               hance the fishery resources of the Great Lakes common to the United States and Canada,

               and to develop and execute specific measures to attack the lamprey eel problem which

               began with the opening of the Welland Ship Canal and which had a serious toll on

               major commercial and sport fisheries of the Great Lakes.

                    The most significant aspect of the IJC and the Great Lakes Fisheries Commission

               is that they were established to handle regional problems in the Great Lakes that

               have international implications; namely, water and fishery resources. Through the

               involvement of the IJC in pollution,problems, the scope of interest has since

               broadened to include both air and water pollution, thus covering the spectrum of

               land-air-water resources problems in the basin common to the United States and Canada

                    The Great Lakes Basin Commission was formed under the provisions of the Water

               Resources Planning Act of 1965. The primary job of this Commission is to develop a

               comprehensive plan for the joint development of water and related land resources in

               the Great Lakes Basin. This primary mandate surplants the earlier river basin plan-

               ning responsibilities of the U.S. Army Corps of Engineers     although, to be sure,

               the project studies and activities of the Corps still have a very important bearing

               on water resource developments in the Great Lakes Basin. The Basin Commission is

               made up of appointed representatives from the affected states and Federal agencies

               with functional responsibilities in the region. The Commission is purely advisory

               in nature and is especially concerned with planning matters. The Great Lakes Basin
                          staff
               Commission/activities are supported through the budgets of the respective participat'i

               I
                An important part of water use and management problems under investigation by the
                IN is the effects of water on the use of related land resources.

                                                                                                1-17

                agencies. The outstanding characteristic of the Basin Commission's operations       is

                that the joint planning program conducted under the "auspices" or coordinating      dir-

                ection of the Basin Commission is presented to the Federal Water Resource Council,

                and thence, to the Bureau of the Budget, in its entirety. That is to say, the joint

                planning program is subject to review by the Council and the Bureau of the Budget

                on a complete planning program basis. As will be discussed later with the other two

                regional agencies, the budgets for the component studies of the participating agen-

                cies in the regional planning program are carried forth by each respective agency

                through its own review process. Sometimes, the broader program implications of

                specific studies may not adequately be represented in separate budget processes.

                     The first stage of the regional joint plan.by the Basin Commission is presently

                u-;,.der preparation. This first stage is called the "Comprehensive Framework Studies",

                for which final review and approval for initiation is anticipated by November of

                this year. The Framework Study elements presently involve existing study activitiea

                of the cooperating Federal and State agencies. Indeed, there has been a great need

                to bring together the many functional research and planning activities presently in

                operation in the Great Lakes Region under one roof to improve the exchange of in-

                formation and to coordinate planning efforts.

                    Many of the participating agencies in the Framework Studies have already set

                up operational goals and targets toward which they are working as a part of their

                regular operations. In this regard, the "bottom-up" approach to the Great Lakes

                Basin Commission's planning process appears to cover the main problems of resource

                use and management. However, in view of the extreme complexity of the Qomprehensive

                planning process itself, there will surely emerge gaps and interrelationships of

                Great Lakes problems during the course of the Framework Studies that have not been

                adequately anticipated or accommodated in planning research efforts. In this latter

               regard, for instance, in reviewing the tentative draft, one does not develop the

               feeling that the preparation of the Framework Studies and the joint comprehensive

               plan is being based on a strong statement of direction (in the sense of goals, ob-

               jectives, or targets) for regional growth and development, nor that the Commission

               at least in its early efforts -- is preparing the sort of goal definitions or the

               setting of targets that would be useful to the Bureau of the Budget in assessing
               regional program priorities on a national basis,   or to the Marine Sciences Council

               for determining the emphasis needed in developing new marine-science and technology

               which could help solve the region's problems.

                   The avoidance of such quantitative goal-setting is most likely a means of cover-

               ing up or avoiding reconciliation of differences in jurisdictional interests; but,

               by the same token, this detracts from developing a more optimum development of coastal

               zone resources from an overall regional standpoint. The accomplishment of the pres-

               ently defined Framework Studies will be dependent upon the authorization and appro-

               priation of funds by Congress (as well as the state legislatures involved), and

               having the staff and consulting manpower to execute the. programs once they have been

               funded. This could provide a useful tool for redressing any gross distortions in

               achieving a more optimal regional development. Another important problem is the

               scarcity of qualified planners and researchers in the conduct of many studies by

               institutions contributing to pre-planning information and analyses in the Great Lakes

               area.

                   It should be noted that the Great Lakes Basin 6ommission has the usual growing

               pains of a new agency, but is nevertheless achieving substantial progress in prepar-

               ing 4 gigantic comprehensive joint regional planning program. In seeking coopera-

               tion in the regional affairs of affected agencies and jurisdictions -- and upon

               which the execution of the planning program is dependent -- the Commission will

                                                                                          1-19

               obviously need to exercise caution in avoiding the appearance of invading the exis-

               ting powers of Federal agencies or state and local jurisdictions, even though a

               comprehensive planning mandate exists to provide the necessary regional development

               policy guidelines. This means that although clearly stated regional-goals and

               objectives should emerge from, and be stressed by, the planning program, the Great

               Lakes Basin Commission or any of the other advisory regional agencies should not

               be forced into -- or be too quickly criticized for assuming limited posture with

               respect to -- develORing implementation and control measures (as per the feelings

               of strong advocates of regional government). The idea of comprehensive planning

               as a regional function is yet young and, therefore, is subject to a serious setback
               if measures to establish and enforce regional control are prematurely introduced. 1"

                   As will be discussed below with respect to the Great Lakes Compact :--mission

               and the International Joint Commission, the needs for regional control measures tra-

               ditionally emerge on an individual basis responding to specific requirements.   At

               a later time, the need to "coordinate" control measures may become recognized, as is

               happening with the region's planning activities. Furthermore, it does not necessaril

               follow that the "comprehensive planning agency" should automatically be the "plan

               implementation" or "control" agency, nor is there a definite role that the compre-

               hensive plan itself should play. Some planning authorities, for example, believe

               the plan should be an overall unofficial policy and information guideline which is

               kept up to date for the benefit of all types of decision-makers. Others believe the

               plan and the official master plan for development should be adopted and followed as

               precisely as possible, allowing for flexibility and peri6dic revision and updating.

               Hopefully, the most workable strategy for the role of the Great Lakes Basin Commissio

               1
                The Water Resources Planning Act of 1965, under which the Great Lakes Basin Commis-
                sion was established, specifically states that the Commission's actions shall not be
                construed to pre-empt the responsibilities or authorities of existing agencies in
                the region.

                                                                                         1-20

              Joint comprehensive planning program will be developed from the study process it-

              self as well as from insight into the institutional arrangements through which the

              plans may be utilized.

                   Another important factor to be considered in analyzing the scope of the Frame-

              work Studies is concerned with the extent to which the Great Lakes Basin Commission

              (or any of the advisory regional agencies) can: (1) influence or modify the direction

              of the ongoing cooperative studies, or (2) encourage the undertaking of studies to

              cover gaps (overlaps that do,exist may be politically unavoidable) in constructing

              and administering a comprehensive joint planning program. This is primarily a func-

              tion of the willingness of the participating agencies. In other words, the success

              or effectiveness of the Great Lakes Basin Commission at this early stage in develop-

              ing a comprehensive planning process, as well as a plan, for the region will depend

              more upon the aggregate intentions of the policy decision-making leadership of the

              participating agencies to express their regional interests through the vehicle of

              the Commission than upon the exercise of the planning authority of the Commission

              and its staff. This relationship is clarified in order to give the proper prespec-

              tive to assessing present and future accomplishments of the Commission and Federal,

              state, and local agencies in solving regional problems. To the extent that the

              Commission's planning activities have been reviewed, it appears that.the cooperation

              and contributions of the participating agencies -- a6 demonstrated in the tentative

              Framework Study draft -- is a well-organized and fairly complete set of activities.

                  While the present organization of the Commission's joint planning program is

              based geographically on the subregions of the Great Lakes' drainage basins and on

              functional (problem-oreinted) headings, neither these dimensions nor subregions geo-

              graphically or functionally lend to the identification of the "coastal zone" as a

              regional unit for study purposes. Although for the purposes of this study the Marine

                                                                                           1-21

               Sciences Council considers the entire drainage basin and waters of the Great LiLkes

               as within the framework of planning for the coastal zone, the relationship between

               the "intense, varied human uses superimposed" on the "intricate, delicate ecology"

               of the land-air-water Interface along the perimeter of the Great Lakes is not de-

               scribed as an element of special study commensurate with the elements of the Com-

               mission's planning program.

                    One might also have defined the coastal zone in terms of a more or less inde-

               terminate narrow band on either side of the shoreline as having special Importance

               in evaluating the commonality or conflict of interests with regard to multiple uses

               of the marine resources of the "coastal zone". A focused identification of this more

               restricted coastal zone would also provide criteria for comparision of interests of

               overlapping basin-wide jurisdictions of the marine-related zone with those having

               problems and interests more peculiar to the hinterland of the drainage basin area.

               This problem of zonal differentiation also applies to other regional jurisdictions

               extending beyond the drainage basin, as for instance, the Upper Great Lakes Regional

               Commission whose jurisdiction based upon economic criteria includes many counties

               (in Minnesota and Wisconsin) outside the Great Lakes Drainage Basin but which are

               linked with coastal zone counties by certain common economic problems not particularl

               involved with coastal zone resources.

                    Other study efforts of the Marine Sciences Council are dedicated to defining

               in precise terms the criteria ty which the coastal zone may be defined. The problem

               of defining this regional unit is particularly difficult in the Great Lakes Region.

               The configuration of a regional boundary will conform to the particular function or

               problematic feature being described geographically. For this reason, considerable

               difficulty is frequently encountered when trying to define a single regional boundary

               to include a variety of geographic, social, or other "problem" commonalities. This

                                                                                          1-22

              task is particularly difficult in the coastal zone because of the great variety of

              factors and characteristics such as uses, political boundaries, physical features,

              and ecological conditions which should be included within the definitional criteria

              -- and for which variety is even more extreme In the Great Lakes Region. Still,

              however, it seems obvious from visually appraising the coastal zone that the primary

              zone of common influence is concentrated largely within the few hundred feet or yards.

              of shoreline and water-oriented,uses and extending, at the most, to the interior

              boundary of the tier of counties and contiguous urban areas adjacent to the lakes.-

              In many areas (and especially along the U.S. shorelines of Lakes Erie and Superior),

              a dominant natural or man-made feature exists which demarks the orientation of man's

              activities either toward the shoreline and lake waters or to the hinterland. These

              are such thin-s as freeways closely paralleling the shoreline or a waterfront area

              of a city which is separated from the central business district by a m ain traffic

              artery, railroad, or bluff -- as in the case of Erie, Pennsylvania. Of course,

              there are certain very broad geographical Influences affecting the coastal zone in

              common with hinterland areas such as weather and climate factors, drainage basin

              features, shared economic and social conditions which may require broad regional

              program planning to preserve shoreline resources or enlarge their beneficial use.

              This is why despite the importance of focusing on the relatively narrow perimeter of

              the coastal zone in this study, it is also important to take a broader view of

              regional development such as that encompassed by the Great Lakes Basin Commission.

              Another important agency having broad regional jurisdiction is that of the Upper

              Great Lakes Regional Commission which was established under the provisions of the

              Public Works and Economic Development Act of 1965. The Commission was formed to

              stimulate the economic development of the northern portions of Minnesota, Michigan,

              and Wisconsin of the Great Lakes Region which have significantly lagged the nation ir

                                                                                          1-23

               economic growth and prosperity. The primary purpose of the Regional Commission

               is to develop a broad long-range, economic development plan for the designated

               region, and to provide technical and financial assistance in planning and develop-

               ment activities of participating state and local jurisdictions enabling these juris-

               dictions to provide maximum matching funds for participation in other Federal grants-

               in-aid programs which will be of economic benefit to the region. The Upper Great

               Lakes Regional Commission differs from the Great Lakes Basin Commission and the

               Great Lakes Compact Commission from the standpoint that the Regional Commission's

               scope-is limited geographically to the more economically depressed area of the Great

               Lakes Region and, hence, its planning mandate is of a broader economic development

               scope.

                    In this latter connection, the Regional Commission has certain advantages that

               the other Commissions do not have. The Regional Commission can plan for all function

               areas of resource and economic development such as transportation, education, and

               water development including the roles of local government and private industry. Alec

               the economic development objective lends itself to better interpretation and prioritY

               assessment of various regional development activities. For example, since the main

               goal is to achieve greater economic development, research proposals, development

               projects, and other studies have a clear mandate for developing their jurisdiction.

                                                                                         1-24

              Unless a proposal can be justified on the basis of its contribution to regional

              economic development, such as increasing employment or productivity, it is not

              approved. Such straightforward criteria are not so clearly apparent in the review

              processes of the other Commissions.

                 The most significant characteristic of the Upper Great Lakes Regional Commission

              is the fact that the representatives of the participating states within the economic

              development region are the chief executives of the states -- the governors. The

              federal representative, who acts as co-chairman of the Regional Commission, is

              appointed by the President. Although the recommendations and actions of the Regional

              Commission are advisory, as are the other Commissions, the fact that the commiss-

              ioners are themselves key deciston-makers in their respective states holds con-

              siderable advantages in promoting follow-up action by the state governments.

                 Another advantage of the Upper Great Lakes Regional Commission is the avail-

              ability of supplemental technical and financial assistance to aid a wide variety

              of public and private entities in developing projects. Each assistance project

              becomes an implementation tool or measure to accomplish the economic objectives

              for regional growth established by the Commission, with the additional advantage

              of being able to extend such assistance (with the approval of the Commission)

              directly to private parties for commercial and industrial projects as well as

              public works projects or services, such as sewer facilities or education and

              training.

               The Upper Great Lakes Regional Commission area of scope covers only the western

              portion of the Great Lakes Basin Commission's Jurisdiction (while extending beyond

              the Great Lakes Basin to the South and West).

                 However., both of these Commissions rely heavily upon the contributions of federal

              and state agencies cooperatively participating in their planning programs. As

                                                                                          1-25

             discussed in the preceding section, the Great Lakes Commission has initiated a

             framework study program as the first stage leading to the preparation of a

             comprehensive joint plan for the use of water and related land resources of the

             Great Lakes Basin. The Upper Great Lakes Regional Commission has a similar

             mandate to develop a comprehensive plan for the economic development of its

             region. As the Regional Commission's legislative mandate stressed action, the

             Regional.Commission went directly into a first-stage program to review the studies,

             planning activities, and project proposals that have already been accomplished

             .throughout the Region. On the basis of these previous study efforts, an "inventory

             of needs" was developed from which a list of urgent projects was selected. These

             projects were based on criteria designed to spur rational development and are

             listed in the Appendix (pp..16-18).

                The Regional Commission has organized these urgent programs into an "Early

             Action Prograd'. This Program has the advantage of the governor's approval, which

             facilitates a particular state agency's project contribution receiving adequate

             attention in the state's budget process. However, the same sort of advantage is

             lacking with regard to the various federal agencies with responsibility to carry

             forth project components of the Early Action Program through their budget processes.

             Even though the Early Action Program may have the endorsement of the Regional

             Commission and the Secretary of Commerce, it does not have the advantage, as

             does the Great Lakes Basin Commission, of being able to carry forth its framework
                                                                                1
             study package through one budget process, as in the spirit of PPBS.

               As a part of the Regional Commission's economic development program, a

             .1
             Planning, Programming, Budgeting System

                                                                                            1-26

              comprehensive long-range economic plan for the region will be formulated. It is

              the coordination of the longer range regional planning effort between the Regional

              Commission and the Great Lakes Basin Commission that is important. The problems

              of the Great Lakes Region are so broad and complex that the Early Action Program

              and the Framework Studies are surely needed as foundations for setting the stage

              for longer range planning as well as coordinating on-going activities toward

              immediate problem-solving steps in critical areas of the region. It is imperative

              -- both in terms of national and regional interests -- that the longer range plann-

              ing programs for economic development and water-related lhnd resource development

              be based on the same proposed or estabilished goals for the region as a whole.

                 Inquiries into this aspect of coordination indicate that., as the planning

              programs of both of these agencies are yet relatively new, more time will be

              needed to achieve a higher degree of coordination. Moreover, it is important

              that this be done before these two programs advance in certain directions which

              will make reconciliation of programs and objectives more difficult to achieve

              with regard to polar influences of subregional or local positions. A closer

              review of th,..se planning programs would perhaps reveal some of the latter

              influences already; but if given the benefit of clearly identified long-range

              objectives, shorter range programs of localized action enacted to pressure

              points within gegion-wide problems will have the opportunity to gradually give

              way or grow into the proper scale and perspective.

                 The same otservation made earlier with respect to the inadequate treatment

              of the coastal zone in the Great Lakes Basin Commission studies, may be made

               Henceforth in this report, we shall use the more restricted interpretation of
              the width of the Coastal Zone as being much less than the width of the drainage
              basin of the Great Lakes.

                                                                                                 1-27

              about the Early Action Program. For example, the National Sea Grant Program could

              contribute to the training of researchers and technicians to assist in the

              development of coastal zone resources if the problems, needs, and opportunities

              of such development -- particularly those relating to the "marine sciences" --

              were properly identified and articulated in the Early Action Program and Frame-

              work.Studies. The financial assistance provided to the State of Minnesota by the

              Regional Commission to enable that state to obtain matching funds from the Bureau

              of Commercial Fisheries for the propagation of Coho salmon in.Lake Superior is

              an excellent example of the coopeation between economic development and resource

              management agencies and programs.

                 Yet, the relationship for stimulating economic activity is not always so clearly

              demonstrable in the coastal zone. For example, two of the four economic development

              projects that received assistance along the Lake Superior shoreline involved

              the increase of boat facilities at Saxon Harbor, Wisconsin; and Grand Marais,

              Minnesota. On the other hand, the NPA staff in interviewing a local planning

              official in the area obtained a picture of a recreational boating potential that

              was not developed in this general vicinity because of the lack of adequate maps

              and charts, and the provision of current weather information and safety facilities

              such as harbors of refuge. These are typical public services which would encourage

              the increase of boating activity along the relatively uninhabited shoreline of

              Lake Superior, rather than the focus of activity on just a few small harbors

              or marine facilities. However, the resulting increase in total employment and

              economic benefits may be more easily measurable in harbor developments than the

              more widely diffuesed services just mentioned which may ultimately involve a greater

              increase in economic activity throughout the coastal region. This example shows

              the kind of information and expertise that may be contributed to the Early Action

                                                                                             1-28

                 Program activities by strengthening the study aspects dealing specifically with

                 the coastal zone as an economic unit.

                   Another problem in this regard is associated with assessing economic problems

                 in the coastal zone. The problem of underutilization of manpower, capital, and

                 natural resources along the shoreline of the coastal zone, particularly *ith

                 regard to those resources and activities that are "water-orientated", is-typically

                 widely dispersed. For example, because of the heterogenous nature of the fishing

                 industry and the spread of fishing vessels to a great number of home ports,

                 seldom.does the number of unemployed fishermen show up as a significant figure

                 in regular labor force reporting practices. Yet at the same time the industry

                 as a whole is known to be relatively depressed in the Great Lakes Region. The

                 previously mentioned boating example is also appropriate to this characteristic

                 of economic conditions along the shoreline of the coastal zone. For this

                 reason, it would be desirable for such a regional planning agency to treat the

                 coastal zone as an economic sub-unit and organize employment data and other

                 information pertaining to "shoreline-orientated" activities for the purpose of

                 comparing specific coastal zone location needs with other subregional unit needs.

                   Still another regional agency is the Great Lakes Compact Commission. This

                 is an advisory body established by compact af the Great Lakes states in 1955 for

                 the purpose of meeting water resource responsibilities in the Great Lakes Basin
                 by cooperative state and interstate action.lIn ratifying the Great Lakes Basin

                 Compact, the states designated the Great Lakes Compact Commission as their joint

                 research and advisory agency on Great Lakes water resources development, programs,

                 and problems. The lake basin scope of the Compact Commission is similar to

                 the Great Lakes Basin Commission scope, as well as being similar in water resource

                 1
                 In 1'969', Congress ratified the Great Lakes Basin Compact with the enactment of
                 P.L. 90-419.

                                                                                             1-29

                orientation. However, the planning and study activities of the agencies partic-

                ipating in the Compact Commission activities are more management and implementatinn

                -orientated due to the nature of the Compact commitment.

                   The members of the Compact Commission are appointed by the governors or as

                specified by the laws of the membership states. Most of the members are the

                heads of natural resource departments, and a few are members of state legislatures.

                The activities of the Compact Commission are financed solely with state funds,

                and the recommendations of the Commission are purely advisory. A significant

                activity of the Compact Commission at this time is the development and presenting

                of a management compact to the respective participating states and federal

                agencies involved in the Great Lakes Region. This management compact is being

                designed to facilitate the coordination of resource management activities of these

                agencies which have region-wide implications.

                   The role of the Great Lakes Compact Commission has been to assist the eight

                states within the Great Lakes Basin to discharge their responsibilities for the

                development and protection of the water resources of the lakes, particularly

                with respect to region-wide matters of common interest and concern to the states.

                The Compact Commission's activities have primarily been concerned with water

                levels, water quality and pollution control, fisheries, and commerce and

                navigation. For example, in the 1965-66 period, the Compact Commission took

                the following actions in the areas of water quality and pollution:

                   � Provided drafting assistance and recommendations for the Water Quality
                     Act of 1965 (PL'39-234Y a'iid for'the Water Resources Planning Act (PL 89-
                     80), and supported congressional enactment of the Acts.

                   � Urged the U. S. Public Health Service to develop a Model Harbor Sanitation

                 Great Lakes Commission, Report to the States, 1965-66,Ann Arbor, Michigan,
                  pp. 19-20

                                                                                           1-30

                    Code of set of standards for guideline procedures in port and harbor
                    sanitation. Thd initial draft of the document was completed and circu-
                    lated in 1966. Publication date is not fixed.

                    Continued its efforts to have established uniform and workable regulations
                    governing the disposal of wastes for watercraft. Efforts continued to
                    have made availabie the report for the Secretary of Interior on the sub-
                    ject of disposal of wastes from watercraft.

                  � Supported the construction of the regional water pollution control labor-
                    atory for the Great Lakes Region. Construction of this laboratory was
                    authorized in January 1963 and bids for construction were opened in
                    January 1966. No further action has been taken.

                  � Participated in pollution control enforcement conferences for.Lake Michi-
                    gan and the Calumet.area; for the Detroit River and western Lake Erie; and
                    for Lake Erie. The Commission presented statements in support of the
                    enforcement actions and recommended specific activities and actions in
                    the research effort for the effective abatement and control of pollutants,
                    including nutrients and thermal pollutants.

                  These activities demonstrate the role of a regional agency concerned with

               assisting the affected states in voluntarily working on management problems having

               region-wide implications. Although a consistent management approach can be

               achieved on a problem-by-problem basis, it should not necessarily be assumed

               that all of the region-wide implications associated with a particular problem

               can be effectively considered in this approach. On the other hand, even with

               the on-going planning programs of the Great Lakes Basin Commission and the Upper

               Great Lakes Regional Commission, this working responsibility to handle problems

               is a necessary ingredient to the region - wide management of resources. It is

               also a relationship or function that should be maintained and strengthened

               as part of permanent arrangement for regional resource management in the Great

               Lakes Basin.

                  Another important agency having important functions in the regulation and

               use of coastal zone resources is the International Joint Conmission.(IJC) The

               IJC was created by the United States and Canadian Boundary Waters Treaty of 1909.

                                                                                          1-31

               Its main purpose is to act upon all proposals ( or applications, as they are

               called) for the use, obstruction, or diversion of waters flowing across the

               boundary comm n to the United States and Canada which would affect the natural

               level or flow of these waters. The IJC has an additional responsibility to

               investigate and make recommendations on matters referred to by the respective

               governments ( called "references"). This latter responsibility is becoming

               a major role of the IN and is expanding its scope of concern to other resource

               issues common to the two countries -- such as water and air pollution, and

               preservation and enhancement of secenic beauty (American Falls).

                 Three representatives on the IJC are appointed by the President and three.

               by the Canadian Government. their rulings on applications dre final. However,

               the IJC recommendations on referenced investigations are advisory. The absolute

               or final authority of the IJC over boundary waters is unquestionably the most

               important aspect of its activities. Here is a unique case where the responsibility

               for review and action on regional problems were vested in a single authority

               whose action was not subject to overruling by a didsatisfied interest.

                 It is also significant that other regional problems with international impli-

               cations are increasingly being brought to the attention of the IJC for invest-

               igation through references submitted by various agencies of the two countries.

               Since the recommendations with respect to conclusions derived from the IJC's

               investigations are advisory, this raises the question as to what would be the

               advantages (or disadvantages) of extending the authority of control over boundary

               water to other resource matters such as fisheries or air pollution. Additionally,

               the study or investigate capability of the IJC is managed on the basis of two

               national sections utilizing the cooperative study resourees of agencies

                                                                                             1-32

               participating in the investigations Tauch in the same way as the Regionil. and

               Basin Commissions are operating. As mentioned earlier in the Great Lakes Basin

               Commission section,regional powers usually evolve on a need basis in which case it

               might be that the ultimate role of the IJC, or similarly constituted agency,

               may be to settle disputes on all development and management problems affecting

               the entire region, which cannot be reconciled nationally or regionally. An

               alternative would be to re-channel the investigative role of the IJC into one

               of the newly established regional or basin agencies which are already cooperating

               with most of the same agencies contributing to or execoting the investigations

               of the IJC. The underlying principle posited here is that the investigative

               and decision-making functions should be maintained as separate organizations,

               much as the "bar" is separated from the "bench" in legal matters.

                  It is to be noted that such an evolution of powers and duties is not one which

               is encouraged in the legislative mandates which include the call.for "cooperation'

               in establishing the regional agencies in the Great Lakes area. For example,

               Section 3 of the Water Resources Planning Act specifically identified the IJC

               as one of the agencies whose powers are not to be considered pre-empted or

               superseded in the Great Lakes Basin Commission's activities. It is true that

               statements of this kind are needed to clarify roles between agencies, particularly

               in overlapping areas in the early stages of program enactment. But at the same

               time, they also discourage what could be a logical evolutionary transfer of

               investigative effort as well as the sort of bureaucratic flexibility which would

               better harmonize the efforts of the various organizations with a measure of

               overlapping responsibility so as to reduce wasteful duplication. (However, this

               is not to say that all duplication of effort is necessarily wasteful.)

                                                                                              1-33

                  More limited in scope is the Great Lakes Fishery Commission which was originally

              established in 1955 by convention between the United States and Canada to formulate

              R & D programs and to recommend management measures to preserve and enhance the

              fishery resources of the Great Lakes common to the two countries. At the time,

              the lamprey eel intrusion has become a major problem; and emphasis was Immediately

              placed on the Commission's activities for developing and implementing measures to
              control the lamprey  @_roblem -) Funds for the lamprey control program have been
              supplied largely by-the U. S. and Canadian Governments on a 69 to 31 per cent

              matching basis as determined by the estimated value of the U. S. and Canadian
              trout fisheries iit!;h lakes at the time of the convention. These funds are used

              by the Commission to work with other agencies, chiefly state departments of fish

              and game and the U. S. Bureau of Commercial Fisheries, in executing lamprey control

              measures. The Commission is advisory in nature and on a staff basis it informally

              cooperates with the other regional Commissions. However, few of these coordinating

              relationships are formally recognized as such ( e. g., the staff contributions

              to the Great Lakes Basin Commission's fishery studies). Much of the Great Lakes

              Fishery Commission's investigations are conducted in cooperation with participating

              state and federal agencies in a manner similar to the Upper Great Lakes Regional

              Commission, the Great Lakes Basin Commission, and the IJC.

                  The-most important aspect of the Commission's activities is its responsibility
              in(ma@ @in@ghe dynamic fishery resource which is common to the United States and
              Canada. In this respect, the Commission's activities are quite similar to the

              investigations of the IJC. This again raises a number of important questions:

                  (1) What kind of decision-making and investigative role should be set up for

                     region-or basin-wide responsibility?

                  (2) To what extent should functional resource reseach and resource management

                                                                                             1-34

                     be conducted on a single-purpose basis for the region, not only for
                                                                                       1
                     fisheries and other water-related areas     but for all resources ?

                  Q)To what extent should natural resource matters, in addition to boundary

                     water control, have the benefit of regional decision-making?

                   The roles of the Great Lakes Fisheries Commission and the IJC present three

               precedents for approaching regional problems:

                   o The setting up of a special review board to act on special resource

                     problems, with the burden of responsibility for investigation and fact

                     presentation on the respective parties seeking approval or disapproval

                     of a particular activity or project;

                   o An increasing need for an investigative responsibility to handle a variety

                     of region-wide water-related problems having international aspects; and

                   o A study and management group with responsibility for one functional resource

                     area.

                   With respect to the first precedent, the question arises: Why limit this kind

               of decision-making only to boundary-water matters? Are there not other regional

               problems that could benefit from having such a "court-of-last-resort" to settle

               disputes and reconcile interests through a neutral review board? Also, with

               respect to the latter two precedents, should other regional resource functional

               areas be attended to by a special regional Commission to handle their problems

               and potentials? Or should all such investigations be handled under one

                Even on a single-purpose basis, most functional programs are attempting to adopt
                comprehensive outlooks. Some have gone so far as to establish "comprehensive"
                planning programs as part of their functional operations. With several comp-
                rehensive planning programs going on in the region, the need arises for their
                coordination to develop consistency of objectives and goals and to avoid unnec-
                essary duplication of effort in planning research or information-gathering tasks.

                                                                                          1-35

               organization, which might or might not also be a decision-making organization? Are

               there other regional organizations now established in the Great Lakes area which

               could better handle investigations of functional resource problems of a regional

               significance? These matters, it would appear, are deserving of attention in

               arriving at a more satisfactory organizational framework.

                  As an obvious example of the possibilities of reorganizing the institutional

               arrangements in the Great Lakes Region to better accommodate review of region-

               wide matters, it would seem advantageous for either the Great Lakes Basin

               Commission or the Great Lakes Compact'Commission to be designated to plan for

               the primary research and conduct the investigative work of the IJC and the Great

               Lakes Fisheries Commission. Also, consideration should be given to the expansion

               of IJC's d6cision-making role to include a broader-based arbitration and dispute-

               based arbitration and dispute-settling platform for region-wide problems that

               cannot otherwise be reconciled through state or national and international

               negotiation. It would seem in the case of fisheries, for example, that the

               broader implications of fishery management measures within the eco-system of

               the Great Lakes or the determining of economic policy dealing with consequences

               between sport and commercial resource development strategy transcends the

               traditional investigative capacity of the fishery expert in the context of

               region-wide comprehenskv e planning. It is true (as in the case of the lamprey

                    that a problem of extreme regional importance may arise from time to time

               which may require special action to establish a group to study-and possibly

               execute remedial measures on a large scale for a limited period of time. The

               continuing tenure for such a measure and its institutional relationships is

               another question that might well be subject to the continuing review and possible

                                                                                             1-36

                re-disposition in line with other resource use and management policies and

                programs in the Basin.

                   Table I contains a partial list of institutional measures used by government

                agencies and other organizations to control or influence the use of resources

                in the Great Lakes Region, including natural, capital, and human resources.

                Although the attention of this study focuses on the effect of these measures on

                the use of resources in the Great Lakes coastal region and , more,specifically,

                the coastal zones of Lake Superior and Lake Erie, this list was developed as a

                result of a region-wide review of institutions regulating the use of these

                resources or in other ways influencing their development. the,foremost example

                of direct controls is the use of zoning regulations as a tool,for enforcing

                the implementation of an adopted city or county comprehensive plan, or other

                development policy or strategy. Zoning regulations or ordinances can control

                the kind of use, such as agricultural or industrial, as well as other factors

                relating to the conduct of use, such as agricultural or industrial, as well

                as other factors relating to the conduct of use, such as the Duluth zoning

                ordinance requiring industry in certain strategic shoreline locations to be

                "water-orientated". On the other hand, the actions of other public agencies

                such as freeway builders or port developers -- which for the most part are exempt
                from zoning regulations may also i+Uence the use of land and water areas,
                population distribution, and economic activity beyond their immediate program

                or project-orientated objectives. Public Works projects have an indirect impact

                on influencing the use of resources in many instances which is far more reaching

                than direct control measures such as zoning.

                   This list of Table I organizes a number of key institutional control measures

                                                                                       1-37

                                                     Table I

                       Institutional Measures for Controlling, Regulatinp., and Otherwise
                           Influencing the Use of Resources in the Great Lakes Region

                     Government Administrative Procedures

                     Budget Formulation and Review
                     Program Requirements (Administrative)
                     Executive Authority (Granted by Legislative Body)

                2.) Government Operations and Programs

                     Public Works Projects

                        Public Works Coordination
                        Capital Improvement Programming

                     Disposition and Management of Public Lands

                        Sales, Leases, and Royalty Payments
                        Management Policies

                     Coooeration (Flexibility in Government Projects)
                     Conduct of R&D, Planning, and Forecasting
                     Collection afid Dissemination of Information
                     Provision of Technical Assistance
                     Timing of Activities
                     Eligibility Requirements or Cooperative-Obligations-for
                      Receipt of Services or Products
                     Education and Training,
                     Provision of Facilities and Services (Such as recreation, health, safety,
                      rescue, transportation, welfare, property protection, law enforcement,
                      and other social measures)

                3.) Special Government Economic and Financial Measures

                     Fiscal Policies

                        Taxation

                           Incentive Heasures (deferments, exemptions, tax rate reduction)
                           Discouragement Measures (increase of tax rates)

                        Financial Assistance

                           Grants
                           Loans (guaranteed and low interest)
                           Cost Sharing (par and non-par)

                                                                                    1-38

                          Eligibility Requirements
                          Performance.Requirements

                       Import Tariffs and Quotas

                    Monetary Policies

                       Credit Control Regulations
                       Borrowing Powers
                       Federal Reserve Board Actions

               4.)  Other Governmental Regulatory Measures and Powers

                    Approval, Authorization, and Appropriation of Budget Expenditures
                    Zoning - (Use of Police Power to Enforce Use Regulations)
                    Subdivision Regulations
                    Deed Restrictions
                    Architectural Requirements and Standards
                    Public Health Codes
                    Building Codes
                    Setting Production Allowances or Quotas
                    Antitrust Laws and Administration
                    Laws Pertaining to Water Rights
                    Laws of Ownership and Property Jurisdiction
                    Access Control
                    Power of Eminent Domain
                    International Agreements and Commitments
                    Public Utility Regulations
                    Patent Laws

                                                                                          f_Jq

               which are being utilized by the various functional agencies, organizations,
               and different layers of government. For instance, some measures particularly
               lend themselves to, or historically have been the responsibility of, city and
               county governemnt, such as the zoning authority previously mentioned. Other
               measures are move applicable on a regional level, such as the decision for a
               new major air transportation facility or water management practices involving

               lake level variation.
                  Inherent in the five regional agencies discussed above is the capability for
               planning, coordinating, inaking decisions, and implementing programs on a regional
               basis in the Great Lakes Basin. However, this capability,is disjointed and needs

               to be molded into a more consistent, efficient, and rational institutional
               arrangement which will enable these functions to operate efficiently and the
               fruits of their findings and expert contributtons to be affected to the maximum

               extent possible.

                 These agencies commonly rely on the cooperation of federal and state operating

               agencies in the conduct of special investigations and component study elements

               of the comprehensive planning programs for thich they are responsible. Therefore,

               the task of conduc ting research and planning studies utill remains with the experts

               in the functional agencies. For this reason, a considerable coordination is accom-

               plished almost "automatically". For example, many of the experts in a particular

               functional area such as water pollution (the FWPA), or water transportation ( the

               U. S. Army Corps of Engineers) participate in the study groups of several regional

               bodies, and thereby contribute firsthand working level coordination. Additionally,

               these working-level people have initiated special groups on their own to inform

               and to keep one another up to date on their respective research and study activities,

                                                                                           1-40

               such as the Great Lakes Study Group and the Federal Interagency Committee on Great

               Lakes Research.

                  Indeed, the coordination of efforts to solve the problems and to utilize the

               opportunities for growth and welfare of the Great Lakes Basin is a tremendous

               task -- in terms of both the complexity of the intercelationships of the physical

               and social resources involved and the organizational and institutional require-

               ments to effectively accomplish this task. It was found that much work and effort

               is being put forth at the working levels of the many agencies towards "coordination";

               but somewhat understandably, a much lesser effort of this kind is being exerted

               at the top levels of the regional organizations who are among the chief coordinators

               of regional affairs.'     At the level of federal agency participation, the Bureau

               of Commercial Fisheries, for example, is playing a significant role in the fishery

               elements of each of these programs, and in this process is undoubtedly contributing

               knowledge and other assistance derived from its working relationship with the

               Great Lakes Fisheries Commission and the many other state fisheries agencies in the

               Basin. From the overall decision-making viewpoint, and especially from the

               national policy viewpoint of marine science affairs, it would appear that one

               regional organization should be designated to have the primary responsibility

               to recommend Basin goals and priorities as these relate to multiple uses of the

               cbastal zone so that a standard may be set to guide coordination between public

               and private orgatizations.

                  The Great Lakes Basin Commission is an expmple of the kind of organization

               thru which planning and coordination of decision making may occur on a regional

               basis, including the provision of an avenue for cooperation with the Marine

               Sciences Council in the administration of national interest in optimum use of

               the coastal zone. As mentioned above, steps to define goals for the Great Lakes

                                                                                           1-41

                Basin - and from which priorities for action programs in Lake Erie and Lake

                Superior may be. derived - are bding formulated in the Great Lakes Basin

                Commission's Comprehensive Framework study '! to provide a broad guide to the

                best use, or combination of uses, of water and related land resources of a

                region to meet foreseeable short and long term needs."  The broad economic and

                social goals have been further defined in three objectives for framework studies:

                (1) national income, (2) regional development,and (3) environmental quality.

                  The national income objective of water resources planning for the Great Lakes

                Basin, which includes the coastal zone, is to increase national income through

                investment in water resources development. The potential increase in national

                income is assessed by estimating the excess of projected benefits over (total)

                costs of water resource development and management programs proposed to meet

                demand for water and water-related uses. The Marine Science Council could contribute

                to this objective by supporting the steps necessary to develop information --

                including R&D on the relevant measures involving marine science and technology

                to facilitate the assessment of costs and benefits by the Great Lakes Basin

                Commiasion in their planning effort.

                  The regional development objective of.water resources planning is to increase

                employment and create an environment that encourages.-or permits economic devel-

                opment in an area through investment in water resource development, particularly

                in developing depressed areas. An example of criteria for choosing programs

                and development actions for economic development is seen in the rationale used by

                the Upper Great Lakes Regional Commission for singling out proposals from an

                inventory of action projects previously developed in the region. The criteria states

                1
                Great Lakes Basin Comprehensive Framework StuLv, Plan of Study Document,
                Great Lakes Basin Commission, Ann Arbor, Michegan, September 1968.

                                                                                              1-42

                that a project should.

                   (1) Be regional in character, multi-state in coverage or responding to a
                       a problem common to all three states (Minnesota, Wisconsin, and Michigan).

                   (2) Affect favorably employment and income.

                   (3) Stimulate follow-up private investment.

                   (4) Have immediate visibility and impact on   the region.

                   (5) Provide essential information on which to base long-range investment
                       p-jans of a public and private nature.

                   (6) Improve resource quality and availability in order to enable the eventual
                       expansion of resource-using industries.

                   (7) Public works projects be necessary to the regions infrastructure and
                       which require a number of years before completion.

                   (8) Include provision for a future dimension of program formulation.

                   The Marine Sciences Council could contribute to this objective through

                assessing the manner in which employment and income can be generated through
                                                                                2
                the application of measures in marine science and technology.

                   The environmental quality objective involves the preservation and enhancement

                of the cultural and aesthetic values in the process of resource use and develop-

                ment. These objectives in their execution in the coastal zone may involve the

                Working Papers and Regional Project Proposals for Early Action Program, Upper
                Great Lakes Riegional Comission, Washington, D. C . March 1968, pp. 2 - 5
                2
                Preliminary pilot studies in this area have been made by the National Planning
                Association under contract to the National Council on Marine Resources and
                Engineering DevelopR'                                                              er
                                . , E@and the National Science Foundation: Cf., Spangler, Mill
                B., A Preliminary Review of Alternative Federal Measures of Encouraging Ptivate
                Investment Enterprise in Marine Resource Development, Commerce Clearinghouse
                Publication PB-178-203, Springfield, Virginia, May 1968, 140 pp.; and Bigler,
                Alexander@B., " A Preliminary Review of Current Problems of Manpower and Capital
                Resource Utilization in Maritime Regions and Possibilities for their Solution,T
                National Planning Association, Washington, D. C., January 1968, 49pp. (unpublished)

                                                                                              1-43

               postponement of resource development for future availability when their "best"

               use is needed.   In this case, a lower level of investment in resource develop-

               ment is made to preserve environmental quality. On the other hand, a higher level

               of investment may be required to preserve the quality of water used or required

               to meet present commitments. If the attainment of euvironmental quality objectives

               is given priority over regional economic development objectives, ( as suggested

               in the Framework Study document), the imposition of quality standards may tend

               to restrain development of resources. Accordingly, this could discourage new

               industrial investment on the one hand, or on the other, require higher levels

               of capital investments for existing installations to achieve abatement of

               undesirable by-products of resource use. To illustrate this point, Lake Superior

               is still relatively unpolluted because there has been a "low level of investment"

               in the exploitation of resources in the basin. To maintain this level of

               environmental quality this low level of investment must be maintained, or in the

               event of increased resource use, a higher level of investibent will be required

               to preserve the quality of water and the environment from the undesirable by-

               products of economic development. In the case of Lake Erie, the higher levels

               of investment for environmental quality over and above investments in economic

               developments are only now being required.

                  The Marine Sciences Council could contribute to the objective of environmental

               quality by supporting pertinent R&D in marine science and technology and

               encouraging related fields of R&D such as sewerage treatment to achieve greater

               cost-effectiveness in pollution abatement measures. For instance, R&D would be

               beneficial to more exaetly determine the conditions under which modifications in

               shoreline configurations (discussed in Part III) could contribute substantially

                                                                                          1-44

              to the diluting of polluted waters alono recreation beaches or other waterfront

              areas. This is particularly important in view of the trend toward intensive use

              of the resources of the coastal zone and the resulting high cost of pollution

              control measures at the present level of technology.

                 The Great Lakes Basin Commission has stated that the overall regional objective

              in water and related land resource development is the maximum possible utilization

              of these resources in the Great Lakes Region for the benefit of its people

              for all purposes and uses. These include:

                 @ Adequate municipal and industrial water supplies;

                 dMaximum possible low-cost water navigation, both lake and Wand;

                 �Clean water for recreation, fish and other uses;

                 �Adequate water supplies for irrigation for an expanding economy;

                 eThe maintenance and enhancement of fishery resources;

                 * Adequate hunting opportunities;
                 * The preservation of the regions(:sai@,@'resources;
                 * The control or prevention of floods; and

                 e Adequate low-cost electric power supplies, and for domestic and industrial
                   uses

                 The ptates represented on the Great Lakes Basin Commission have expressed the

              subregional interests or second level objectives in the maximum efficient use of

              water reflected in programs for development ar preservation of coastal zone

              resources of the Great Lakes Region. In its role to promote the optimum use of

              the coastal zone of Lake Erie and Lake Superior ( as well as the other Great

              Lakes) the Marine Sciences Council through cooperating with the Great Lakes

               Great Lakes ComDrehensive Fr&mework  Study, op. cit..

                                                                                           1-45

               Basin Commission can better assess relative priorities for the measures of marine

               science and technology which canbe applied, and which will serve to achieve

               both national and regional interests., In this case, the regional interests

               should be derived from the objectives expressed by the respective states, as
               listed below.1

                  The States of Minnesota, Wisconsin and Michigan have identified the following

               overall objectives for the Lake Superior Basin:

                  Minnesota

                  (1) Improve water related mineral use and management.

                  (2) Improve navigation of the Great Lakes.

                  (3) Develop and enhance recreation, natural areas, fish and wildlife.

                  (4) Increase power development.

                  Wiscinsin

                  (1) Enhance economic opportunity through water and related land resource
                      development.

                  (2) Maintain high quality environment as a base for a recreation industry.

                  Michigan

                  (1) Develop maintenace of a high quality environment, particularly the inland
                      and Great Lakes waters; expansion of economic opportunities through resource
                      development and outd6or recreation.

                  With respect ot Lake Erie, the adjacent States expressed the following

               objectives:

                  Michigan

                  (1) Achieve and maintain environmental quality consistent with rapid urban-
                      ization, industrial expansion and expansion of recreational opportunities.

                Ibid..

                   Ohio                                                                    1-46

                   (1) Increase water supply.

                   (2) Improve water quality.

                   (3) Achieve low flow augmentation.

                   (4) Establish flood control and flood plain management.

                   (5) Develop recreation.

                   Pennsylvania

                   (1) Develop navigation.

                   (2) Develop recreation which is dependent on beach stabilization at Presque
                       Isle State Park.

                   (3) Improve water quality as related to commercial and sport fishing.

                   New York

                   (1) Improve water supply and water quality to meet the water resources
                       deminds of the Buffalo SM1SA.

                   (2) Develop flood control.

                   (3) Develop recreation.

                   (4) Increase water supply.

                   (5) Improve water quality.

                   (6) Develop New York State Barge Canail System as a total water resource.

                   While the above objectives express the regional objectives as viewed by

                the respective States, the Marine Sciences Council will still have to rely

                upon a national planning agency -- such as the Great Lakes Basin Commission

                to establish the relative weights which should be given to the priorities

                on a regional scale. For instance, while all of the Sta   tes cited the "recreation"

                objective, recreation is by no means the program activity receiving the

                largest financial support. It is also interesting to note that Nichigan --

                                                                                           1-43

                bordering both Lakes (Brie and Superior) -- stressed environmental quality which

                includes more aspects than the water quality objective espoused by the other

                three states bordering Lake Erie.  Regarding Lake Superior, Minnesota and Wisconsin

                did not stress either water or other environmental quality objectives. The

                regional objectives most commonly expressed by the Lake Superior States are

                recreation and economic opportunity. These examples demonstrate the planning

                work that remains to be done to develop a sense of regional priorities common

                to the development objectives of respective states and which the regional planning

                program of the Great Lakes Basin Commission is striving to achieve.

                   There are several alternative ways by which the VIarine Science Council

                could cooperate in representing the national interest in the optimum use of

                the coastal zone of the Great Lakes Region, particularly with respect to
                                              in
                coordinating national efforts/ marine science and technology with the form-

                ulation and carrying out of development goals for the Great Lakes Region.

                These-include the following:

                   (1) Appointment of a representative of the Marine Sciences Council to
                       G_
                        reat Lakes Basin Commission, either as a full voting member or as
                       an. ex officio member.

                   (2) Development and inclusion of a Framework study element concerned with
                       the coastal zone (as described at-6ve) to be conducted under the
                       auspices of an agency or agencies designated by the Marine Sciences
                       Council in cooperation with the Great Lakes Basin Commission.

                   (3) Referral of the Framework Study and Great Lakes Basin Commission program
                       plans to the Marine Sciences Council for review and comment.

                   (4) Establishment of a separate continuing coastal zone planning and
                       management study group under the Marine Sciences Council or designated
                       lead agency whose regular reporting to the Council would be available
                       on an advisory basis to all other federal and regional agencies, state
                       and local jurisdictions, and private entities.

                                                  PART II

                                 PRESENT AND FUTURE USFS OF THE COASTAL ZONE

                           General Description and Inventory of the Coastal Zone

                   Physical features.--Lake Erie and Lake Superior are strategic components of the

              Great Lakes System which consists of five huge lakes connected by relatively narrow

              straits of which the St. Clair-Detroit River System of 77 miles is the longest (see

              Figures 1 and 2). This system constitutes the largest fresh water resource in the

              world. The Great Lakes drainage basin is over 240,000 square miles of which nearly

              40%, or 95,120 square miles, is lake surface. Except for the Upper Michigan Penin-

              sula, much of the remaining land in the watershed is witbin 50 miles of the Great

              Lakes Coast. For this reason, as mentioned earlier, river basin planning importantly

              interrelates to the coastal zone uses which are the basic concern of this study.

                   Because of their large size, the lakes are essentially inland seas with a dis-

              tinct pattern of geography, climate, meterology and hydrological relationships.

              14hile the flow in the connecting straits is swift, the lakes are characterized by

              the limited variation in flow from lake to lake and to the St. Lawrence -- varying

              on the order of only plus or minus 25% from the average. This causes a great

              equalizing effect on the storage of water in the lakes.

                  The complex hydrological, bathymetric and physical features of the-Lake System

              are characterized in Figures 2 and 3 and in Table 1. Comparisons between Lake

              Superior and Lake Erie shoxi that Lake Superior is 45% longer than Li3ke Erie (350 vs.

              24.1 miles) and has a mean depth which is 8.4 times that of Lake Erie (487 vs.

              58 feet), a water surface area that is 3.2 times that of Lake Erie (32,000 vs.

              10,000-sq. mi.). Although Lake Erie has a mean discharge of 196,000 cu. ft. of

              water per second, which is 170% greater than the mean discharge rate of Lake Superior,

              there has been a substantial buildup of pollutants of chemicals and dissolved minerals

                                                                                                                      >

                                                                                           J
                                                               r

                                                                                                                                            L AK 4-

                                                                                                                                                      .9                                                                          "o,
                                                                                                                                                       ON

                                                                                                                                                                                                                     0, J;. R I

                                                    Figure l.--Great Lakes, showing major depth contours in                                                                                         fathoms.

                                                                                  Table I.--Dimensions of the Great Lakesa

                                                                                                                        k r ea                   A%-i:rj,:L Surface

                                                                                                                      k`l.iivr        Jim   I                   "A              NIL..III       %I,Lx:muni            Mean
                                                                          1xI-'gLJ1      iiroi- I I li                s k, r i.,      I;    I                                ilochar@c              I,I,Lh           d,:p,,h
                                                          La'e                    k'llil       (Illij                 OW21            11@11J)                                         16,           iizz)            (il)
                                                                                               11.0                   .11 '621)       '11 0611         602 . 20                73 . 31 )1)          1,333            4.37
                                                                                                                                      :@W)             5.,C). 5-;              35     LILM                           27b
                                                                                  3            11                     22 4t,i)        (,7
                                                          u r,                    2, 11,       1'@.i                  23 .011)        7 2o_'O                 5-1            177                    7@O
                                                                                               24                     4-41            74.iO            5 " 4                                                         10
                                                       E                          241          5                      ",i3k)          j2 4,)1)         572    34             1 V3     MjU             10             51 S
                                                       0 rl ta r 1                1')3         53                     75 2 0          34 ?%wO          246. ti.1             233 9U0                602              263

                                                         Data fror.-, L'.). Army, Corlbs of Eriginvers tll)oti)                       (,r peronal cuinmunicaLion.

                                                Average ch,:11lic.-I &,aracier;siic@ of Great Lake., xv.,icrs. U.S. Bureau of Commercial Fizhcriez clala, un1c6s &5ig-
                                                                                                    taniple@. irom v"r"'1Uh -1VIA11.1.

                                                                                                                        U i ka I I r. -                                         Tin la 1                   ST, C C i
                                                                                                                                      I L'v                                     ph"s-                   c,:. r. .. I u C z @ r. c a
                                                                     Calcium       r. e., @ I u I n s,um Sodium                       i i Wr. Chbrii:e Sulfate     Silica      rhnr u -
                                                       Lake           (ppill)         (plim)        (ppro)            @ppni)                kli;)ni)   (I yn-,)    (i ip,n)     (ill -bi       PH        az IS6 C)
                                                                          2 .4          2.8         G. 6              1 . 1           46    1           3.2          2 . I
                                                                                                                                                                                                    .4          S . 7
                                                       urnn             22 .6           6. 34       - I . (71         2.3             1112  7.0             7        2.3              111           1       16" .3
                                                                                  5    10.4         0 . 9             3.4             11.1  6.2        I.S.5         3.1              1.;      il . 0
                                                    ;-.ric              R). 7           A.9         1.4               3.7             ')5   -,1 . ()   21 . I        1 .5             61       ".3           214I.S1
                                                   Onla. "o              39.3           9. lb       1 .2              10. 6           Y3,   23. 5'     32. 4         0.3              -        8.51          .172.5

                                                       A% eri rl ol.. !956.
                                                       Lcvvrin, 19;7 (avcr;Lgc frimi Tor.,iito                        inlake).
                                                       '@C%'          Slate I)CI;L. I 1C;kl1ll' 19.i8.
                            Data fronn: Beeton, A. @Yl. and Chandl                                                                          D.-C. 196'.                     in        L i na n o I c) =c;' y         i a 'North
                               America, 11 Univers.ity of W.isconsin Press, p. 535.

              Cl)

       'Ve s t

                                                                                                                                           ST. CL AIR - DETADIT                                  WELLAND CANA
                                                                                  ST. MARYS                                                  RIVER SYSTEM
                                                                                     RIVER                                                      77 MILES                                                B LOCKS
                                                                                  70 MILES                                                                                                           28 MILES

                                                                                                             LAKES
                                LAKE SUPERIOR                                                          MICHIGAN             8                                       LA K ERIE
                                                                                                            HURON
       .......      . ......    . .......         ..........                     .............
       .... ... ......................            .........
       ...............................
       ...............................            ...........                    ...........
       ...............................            ........... .............
                ........................          .........................                   .........
                                                                                                                                                                            ...........
       ................................           ............ ............                                                                                           ......:..........
         ..............................           ........... ...........                     ......... ..... ............
                                                  ........................
       ..................... .........            .......................                     ............
                                    .........     ........... ..........                               ........ ............ ....
                                                  ........................
                                                                                                                                                                         7  4'
                                                       ...... ..                 ...             ....         .. ................
                                                                                                                            . . . . . .                                          F61 ax. D a p1h 212
                                                                                                                      .............
                                                                                                                      ............
          ................................................. ........
         .............................. .....................
                                                          ..............                                              ....
           .............    ........................... ........                                    ...... ..... ...
          ............................. ....................                                        ...... .... ....
          ................. ........................ ........                                       ...... ..... ...
                         ................. ....................                                     ...... .... ...
           ..... ........ ......................... ........                                        ..... ..... ...
            ........... ... ........... .... ...... ........                                        ...... .... ...
                      ................................ .......                                      ..... ..... ..
                    . .................. ....................                                       ...... .... ...
                      .. ..... ...................... .......                                       ..... ....
                            ............... ...................                                     ...... ....
                            ............................                                            ..... ..... ..
          .............

            .............
                            ............... ...........
              ...........
              ............            ........                                                      .. .. ...
                .....    .............................. .......
                            . ............                                       ....
              ........                                                           ....               ..... .... ..
                            ...............   :                  :::::           .....                                ...
                            ...............                                                           ... ..... .
                               .. .........       ........... ...........

                                     .................... ......
                                      .................... .....
                                      ................... .....
                                       ................... .....
                                        .................. .....
                                          ................. ....
                                         ................. ....
                                              ................ ...
                                              ....................
                                              ................ ...
                                              ................
                                              .............. .....
                                                                                                                      'Max.Depth 752'
                                                  ................
                                                  ........ ... ..
                                                  .......    .....
                                                  ....... ... ..

                                                                                                    Max.Dcplh  925'
                                                                                                    (Lake  michigan)

                                                        M,3x.D!Pth 1333'
                    Lake                                                         SUPERIOR MICHIGAN                    HURON          ERIE         ONTARIO
                                                                                                                                                                                              2
                         -,Llmu      Leng                                                                                                                                     Figure                 Profile o
                                                                                                                                                                                                            I

                    Extreme         Lenth, Miles                                 350             307                  206            241              193
                    Ext rewe        Width, Miles                                 160             118                  183               57               53                        of the       St. Lawren
                    Area, Square Miles                                           31,800    22,400               23,000            9,900            7,600                           profile passes the
                    Average Depth, Feet                                          487             276                  195               58            283                          basin.          A ship wo
                    Volume, Cubic lvdles                                         2,933       1,169                    848            109              407                          shorter track.
                                                                                                                                                      .0                           Source:

                                                                                       11-4

                        nAIN FALL ONTO EAKE SUP FACE, LESS EVAPORATION

                          5*                        11              0             5

                                         78
                            Superior

                                  50           Huron     187    Erie     21-2 Ontario 251

                                       46
                        Michigan                                                   34
                                                    52              25

                                    3*
                          38

                                    RUNOFF FROM DRAINAGE AREA

                                diversions                  oscillatory flow greater
                                                            than mean flow

              Figure 3.--Flow diagram (in units of thousand cubic feet per second)
              for the Great Lakes, assuming steady lake le-jels and based on U.S.
              Lake Survey 1950-60 averages.

             .'*Less than 4% of this passes into the lake across the most highly populated
              shoreline from Milwaukee Wisconsin, south and east through Chicago, Illinois,
              to Michigan City, Indiana.

              Source: Mortimer, o2. cit..

               'in Lake Erie. Table 1 shows that Lake Erie has about 3 times as much calcium and

               magnesium, 2.3 times as much potassium, 8 times as much sodium, 11 times as much

               chlorine, 12 times as much phosphorous, 6.6 times as much sulfate, and twice the

               alkalinity than Lake Superior. Many of the biological and ecological effects of

               these dissolved substances on marine life are yet to be evaluated, but the greater

               nutrients or fertilizer materials found in Lake Erie have greatly accelerated algal

               growth and the process of eutrophication as discussed elsewhere in this report.

                    As seen in Figure 3, take Erie is the only one of the Great Lal,.es where rain-

               fall onto the lake surface does not exceed the evaporation loss of water from the

               lake surface. Moreover, Lake Erie receives only 12% of its drainage inflow water

               from its own onshore drainage area versus 88% received from Lake Huron. Clearly,

               the increased pollution of Lake Huron -- and Lakes Michigan and Superior which feed

               into Lake Huron -- brings adverse effects on the quality of water of Lake Erie.

               However, it is to be noted that the average volume of water entering Lake Erie each

               year from Lake Huron is only about 4% of the total volume of water contained in Lake

               Erie (109 cu. mi. or 147 billion cu. ft.). This indicates a substantial lag in the

               ef f ect of pollution buildups in Lakes Michigan, Huron, and Superior on the level of

               pollution in Lake Erie. By the same token, even if all pollution entering Lake

               Erie were halted, at the avera%e rate of drainage from Lake Erie of 212 cu. ft. per

               sec., it would take about 22 years for nature to remove a volume of water equivalent

               to that now contained in the lake.

                   Major uses of the coastal zone.--The Great Lakes Region represents one of the

               most important geographic divisions of the United States in terms of concentration

               of population, manufacturing, agricultural production, and income. Three of the

               most important urban concentrations in the United States are located in the Region;

               and together these are in the process of forming, an important megalopolis, second

                                                                                                  11-6

                only to that of the northeastern Atlantic Seaboard,. The strategic importance of

                the Great Lakes and the St. Lawrence Seaway as an inland waterway transportation

                system is revealed by the fact that approximately 40% of the raw materials consumed

                in the United States pass through Great Lakes ports. Moreover, most of the impor-

                tant socio-economic activities in Canada are concentrated around the Great Lakes.

                     Undoubtedly, the coastal zone resources will play a key role in supporting

                the growth of the Great takes megalopolis. The growth in population and economic

                activity will be dependent upon the provision of sufficient quality and quantity

                of water from the Great Lakes. Also, the allocation of the scarce resource of lake

                shoreline frontage will become an increasingly important factor in the flux of human

                and natural resources through the coastal zone.

                     The Great Lakes megalopolis appears to be forming around the three major urban

                clusters in the region -- the Chicago, Detroit, and Cleveland-Pittsburgh areas --

                as shown in Figure 4. These three urban clusters are being bridged by a continuous

                chain of urban development as shown-in Figure 5.

                     ,Two main urban axes are forming from the major concentrations. One main urban

                axis, the Chicago-Detroit-Toronto complex, is evident by its extension north of

                Lake Erie and Ontario through Canada. This extension divides at Familton on the

                western end of Lake Ontario with one arm proceeding towards Montreal and Quebec

                and another am extending towards Buffalo and the Mohaxuk Valley to Few York City.

                The other main axis extends along    a line connecting the Chicago-Detroit and

                Cleveland-Pittsburgh clusters, with further evidence of      extension through the

                PotomacRiver Va:114 to'Washington, D.'-C. 'In'''ad'aition to. thIese two main'urban areas,
                a third minor axis is emerging along the southern shore      of Lake Erie connecting the

                Toledo-Cleveland-Buffalo clusters.

                     The 1960 population figures reported an aggregate population of 37 million for

                the eastern seaboard megalopolis and 22 million for the Great Lakes megalopolis.

                                                                                                                                                                                                              11-7
                                                                                                                             Figure           4,--Population Distribution 1960

                                                                                                                                                 L"E IUI

                                                                                                                                                                                     ------------
                        Source: Emergence and                                   Growth of an
                                              Urban Region.,                    The Detro
                                                                                                      it
                                                                                                                                                                  - ------------
                                              Edison Coiwpany, Detroit,
                                              Michigan, 1967, pp.                              4
                                              and 9          respectively.                                                                                                         .......

                                                                                                                                                                                                                      to           'A
                                                                                                                                                                                       i.o.

                                                                                                                              C

                                                                                                                                                                                     0
                                                                                                                                       130                                                           0
                                                                                                                                                                                                                               S

                                                                                                                                                                                                                                   %

                                                                                                                                        -'o   ---
                                                                                                                               .41
                                                                                                                                                                                                              @
                                                                                                                                       4-
                                                                                                                                                                                                     b.-I  -
                                                                                                                                                                                                    Cal,
                                                                                                                                     0

                                                                                                                                   (0), @

                                                                                                                                                                                                                         POnLAIlom
                                                                                                                                                                                                                         PER @.@
                                                                                                                                                                                                                              5XW.DOO

                                                                                                                                                                                                                WW
                                                                                                                                                                                                                      cc'o.ooo

                                                                                        Figure 5.--The                      Emerging              Great          Lakes         Megalopolis
                                                                                                                                                                                                                                   Y
                                                                                                                                                                                       &A'@ V.;.

                                                                                                                                                                                               r
                                                                                       f   -j
                                                              X
                                                                                                "5,   "(f
                                                                                                            fL@ L

                                                                                                                                                      Y
                                                                                                                                                            -7111@@?!-i 7-

                                                                                                                                                                                                              R
                                                                                                                                                                                                                  I POPULATION
                                                                                                                                                                                                              URA
                                                                                                                                                                                                                           Soo I.h.
                                                                                                                                                                                                                         1,000.2,5DO

                                                                                                                                                                                                              URBAN POPUtATION
                                                                                                                                                                                                              IN PLACES OUTSIDE
                                                                                                                                                                                                              URBANIZED     AREAS
                                                                                                                                                                                                                      25.CQO-1o'm
                                                                                                                                                                                                                      IO'om@?5.,oo

                                                                                   1* Main Great Lakes                                       Cleveland-Pittsburg Cluster
                                                                                          Megalopolis                                  5- Canadian-St.Lawrence Seaway
                                                                                   2-     Chicago Cluster                                    K-etension.
                                                                                          Detroit Cluster                              6- Mohawk Valley Extension

                                                                                               11-8

                Assessments of the growth potential of the Great Lakes Pegion have led to      the pre-

                diction that the Great Lakes megalopolis will surpass the eastern megalopolis in

                population by the year 2000.

                     The prospective of an emerging Great Lakes megalopolis suggests that the size

                and complexity of the problems of coastal zone use may be compounded by the year

                2000. This further implies that measures for marine science and technology must be

                developed not only to accommodate current problems in achieving optimum beneficial

                use of the coastal environment, but also to make sufficiently viable such measures

                that would provide the foundation for solving problems of at least twice the current

                magnitude within the next thirty years.

                     Over 80% of the 28 million people in the U.S. part of the Great Lal@es Basin

                live in the metropolitan urban areas of Syracuse, Pochester, Buffalo, Erie, Cleve-

                land, Akron, Toledo, Detroit, Fort Wayne, Flint, Saginaw, Grand Rapids, South Bend,

                Chicago, Gary, Milwaukee, Green Bay, and Duluth. In Figure 6, it is seen that in

                1960 the U.S. part of the Lake Erie Basin held the largest population (about 40%)

                and Lake Superior the least (4%). Over 11 million people lived in the Lake Erie

                Basin in 1960 of which almost 8.6 million (or 78%) resided within the counties im-

                mediately adjacent to Lake Erie (see Table 2). Indeed, about 8 million of the

                latter population (or 94%) were concentrated in the 6 major metropolitan areas

                along the shoreline: Detroit, Cleveland, Lorain-Elyria, Toledo, Erie, and Buffalo.

                This shoreline concentration of population in the Lake Erie Basin and its metro-

                politan orientation clearly suggest that urban interests will hold major import for

                measures in marine science and technology designed to facilitate optimum use of

                the coastal zone of Lake Erie.

                     By contrast, only about half of the one million U.S. population in the Lake

                Superior Basin in 1960 was located along the shoreline. However, about 54% of the

                latter (see Table 3) Was located in the one iiatropolitan'a-rea- (Drilu@h--Superior)..
                                                                                                Except

                                                                                                                                                    7z

                                                                                                                                                                                                                                Figure 6, Po
                                                                                                                                                                                                                                millions by ve
                                                                                                         CAN.            4" Jj
                                                                                                                                                                                                                                -,watershed of e
                                                                                                                                                                                                                             ..The broken po
                                                                                                                                                                                                                                lor Lake Mich
                                                                                                                                                                                                                                population of
                                                                                                                                                        1@                                                                      domestic wast
                                                                                                                                                                                                                                diverted., away
                                                                                           .0                                                                                                                                   through the C1
                                                                                                                                                                          '*17                                                  1rom -L.00 onv,

                                                                                            18ro     1880     1900    IS120   1940    1960
                                                                                                           t..' -  ".   41                                                                                       0
                                           f                                                   A K

                                              VTIT

                                                                        7-

                                                                                                                                                                                                            16.
                                                                                                                                                                               2.0
                                                                                                                          P ey,                                                  .01
                                                                                                                                                                                                  1900 1920 1940 19
                                                                                                                                                                                 18
                                                                                          4@O
                                                                                                                                                                                     L A      K E
                                                                                          1.0
                                                                                                                                                                                        V R' 0 N
                                                                                            .0

                                                                                                                      1900
                                                                                                                                      19
                                                                                                       z                    "'920&-le@0TOM 1960
                                                                                                                                                                                                                      f               2.0                  0 jj T
                                                                                                                                                                                                                                TORONTO

                                                                                                                                                                                                                                        -IeO0
                                                                                                                          rv                                   11.0                                                          LT01 _,&t           Im-      84
                                                                                                                                                                                                                          PA.
                                                                                                                                                                                                                                     '.M                FALLI
                                                                                                                                                               10.0        FUNT
                                                                                                 MILWAUKE                                                                                                                                            9 F FA
                                                                                                                                               GRAND  MP105    9.0.%               PORT KURON
                                                                                                        NA
                                                                                                                                           L".5                8.o             Je                          Miff

                                                                                                                                                               6.0         DETROI

                                                                                                                                           NA.-
                                                                                                                                                                  0
                                                                                                                                                               5.0
                                                                                                                                                                                                         Y_
                                                                                                                                                                                               PZM
                                                                                                       CHICAGO                                                 4,0-      NOMR9

                                                                                                       RUT                                                          TOLEO
                                                                                                                                                               2.0                                          CLEVE AND

                                                 Beeton               A.M            :'1968.: in                 Inter-                                           0   4820     IM     1060
                                                 national              Symposium                    on-Eutrophi-,
                                                 catinn- V.nrli-,nn                          Jimp 1 QA7

                                                                                                     1-10

                                                           TABLE 2

                                1960 POPULATION OF U.S. COUNTIES AND METROPOLITAN AREAS
                                                   ADJACENT TO LAKE ERIE

                      State           CountyI       Total       ]vletropolitan2     Counties       Total
                                                                     Area           Included

                 Michigan                                       Detroit
                                   St. Clair        107,201                         Macomb         405,804
                                   Macomb           405,804                         Oakland        690,259
                                   Oakland          690,259                         Uayne        2,666,297
                                   Wayne          2*666,297                                      3,762,360
                                   Vionroe          101,120
                                                  3,970,681
                 Ohio                                           Cleveland
                                   Lucas            456,931                         Medina           65,315
                                   Wood              72,596                         Cuyahoga     1,647,895
                                   Ottawa            35,323                         Geauga           47,573
                                   Sandusky          56,486                         Lake           148,700
                                   Erie              68,000                                      1,909,483
                                   Lorain           217,500     Lorain-Elyria
                                   Medina            65,315                         Lorain         217,500
                                   Cuyahoga       1,647,895     Toledo
                                   Geauga            47,573     (Ohio portion)      Lucas          4561-931
                                   Lake             148,700                         Wood             72V596
                                   Ashtabula         93,067     (Ifich.portion)     Monroe         101,120
                                                  -i,909,386                                       630,647
                 Pennsylvania                                   Erie
                                   Erie             250@1682                        Erie           250,682
                 New York
                                   Chautauqua       145,377                         Erie         1,064,688
                                   Erie           1,064,688                         Niagara        242,269
                                   Niagara          242,269                                      1,306,957
                                                  1,452,334

                           Grand   Total:         8,583,083                  Grand Total:        8$077,629

                 1
                  Table of Great Lakes Counties, IDCOZ, Marine Sciences Council, August 29, 1968,
                  4 pp..
                 2
                  Standard Metropolitan Statistical Areas, Executive Office of the President,
                  Bureau of the Budget, Office of Statistical Standards, (Washington, D.C.: U.S.
                  Government Printing Office), 1967, 56 pp..

                                                     TABLE 3

                           1960 POPULATION OF U.S. COUNTIES AND METROPOLITAN AREAS
                                            ADJACENT TO LAKE SUPERIOR

                     State        County1      Total      Metropolitan2    Counties      Total
                                                              Area         Included

               111innesota                                Duluth-Superior
                               Cook              3,377    (Minn.portion)   St. Louis     231,588.
                               Lake             13,702
                               St. Louis      -231,588
                                               248,667
               Wisconsin
                               Douglas          45,008    Duluth-Superior
                               Bayfield         11,910    (Wis.portion)    Douglas        45,008
                               Ashland          17,375
                               Iron              7,830
               Michigan                         32,123
                               Gogebic          24,370
                               Ontonagon        10,584
                               Houghton         35,654
                               Keweenaw          2,417
                               Baraga            7,151
                               Marquette        56,154
                               Alger             9,250
                               Luce              75,827
                               Chippewa         32,655
                                               186,062

                         Grand Total:          516,852                                   276,596

               1
                Table of Great Lakes Counties, IDCOZ, Marine Sciences Council, August 29, 1968,
                4 pp..
               2
                Standard Metropolitan Statistical Areas, Executive Office of the President,
                Bureau of the Budget, Office of Statistical Standards, (Vashington, D.C.: U.S.
                Government Printing Office), 1967, 56 pp..

                                                                                           11-12

                for this latter area and a few lesser coastal cities, It is a reasonable inference

                that measures in the marine sciences to facilitate optimum use of the coastal zone

                of Lake Superior will be more resource-base orientated thar. heavily'conditioned

                to urban interests or needs.

                     According to VPA projections (see Table 4), the urbanized pattern of the coastal

                zones of Lakes Erie and Superior in 1960 will persist in future years. The Lorain-

                Elyria metropolitan area is projected to have the most rapid annual rate of growth

                (2%) in the Lake Erie Basin during 1966-85 while Duluth-Superior is projected to

                grow at an even more rapid rate of 2.5% per year during this same period. It is

                noteworthy that, except for these two metropolitan areas, the metropolitan area

                growth in the Lake Erie Basin is projected to be equal to or less than that of the

                nation as a vAiole (which for 1966-85 is 1.3%/yr.). This chiefly reflects the more

                mature level of urban and economic development that has already been reached in the

                Lake Erie Basin, particularly with respect to the large development of basic in-

                dustry centered upon the coal-iron resource base of the Great Lakes Region. More-

                over, the pattern of automotive and related engineering industries heavily concen-
                trated in this Region is beginning to decentralize to other areas of th@ United
                States.1  However, the 6 U.S. metropolitan areas on Lake Erie (see Table 4) are

                projected to have a total population growth of over 2 million during 1966-85, or a

                26% increase for this period. This portends a substantial increase of demand for

                the multiple uses of the urbanized portion of the coastal zone of Lake Erie which

                even now is under considerable pressure.

                    The coastal zones of Lake Erie and Lake Superior display sharply contrasting

                1
                Ross, D. Reid, and Spangler, Miller B., Higher Profits for Motor Vehicle and
                Parts Manufacturing in the St. Louis Region, St. Louis Regional Industrial De-
                velopment Corporation, May 27, 1966, 31 pp..

                                                                                                                IL-13

                                                                   TABLE 4

                                PROJECTED GROWTH OF U.S. METROPOLITAN AREA RESIDENT POPULATION
                                       ADJACENT TO LAKE ERIE AND LAKE SUPERIOR, 1950-851
                                                       (in thousands of persons)

                                                Resident Population - Total Figures
                         Area              1950           1960          1966          1975           1980          1985
                 United States           151,868.0 179,992.0 195,857.0 218,600                    234,500       252,100
                 Metropolitan             85,315.4 114,166.8 131,981.1 154,700                    169,900       186,100
                 Non-Mletropolitan        66,552.6      65,825.2       63,875.9       63:P900       64,600         66,000

                                           Average    Annual Rate of Growth        (in percent)
                                                Resident Po2ulation - Total Figures
                         Area            1950-66       1966-75       1975-80        1980-85       1966-80       1966-85
                 United States             1.6            1.2           1.4           1.4            1.2           1.3
                 Metropolitan              2.7            1.7           1.8           1.8            1.8           1.8
                 Non-Metropolitan         -0.2            0.0           0.1           o.4            0.0           0.1

                                           Metropolitan Resident        PoRulation    - Lake Erie
                         Area              1-950          1960          1966          1975           1980          1985
                 Detroit                 3,033.1       3,783.4       4,123.9        4,490         4,760         5,110
                 Cleveland               1,473.1       1,805.8       23-065.3       23-310.       2,480         2,660
                 Lorain-Elyria             149.6          219.6         249.9         300            340           370
                 Toledo                    397.0          458.6         668.7         740            780           820
                 Erie                      220.1          251.5         254.8         280            290           310
                 Buffalo                 1,094.2       1,307.0       1,323.5        1,500         1,600         1,710
                                         6,367         7$825.9       8,706.1        9,610         101-250       10,980

                                           Average Annual Rate       of Growth    (in percent)
                                           Metro2olitan Resident Population - Lake Erie
                         Area            1950-66       1966-75       1975-80        1980-85       1966-80       1966-85
                 Detroit                   1.9            0.9           1.1           1.4            1.0           1.1
                 Cleveland                 2.1            1.2           1.4           1.4            1.3           1.3
                 Lorain-Elyria             3.2            2.1           2.0           1.3            2.1           2.0
                 Toledo                    3.3            1.0           1.1           1.0            1.0           1.0
                 Erie                      0.9            0.9           1.0           0.9            0.9           0.9
                 Buffalo                   1.1            1.3           1.3           1.3            1.3           1.3

                                       Metropolitan Resident Population - Lake             Superior -
                         Area              1950           1960          1966          1975           1980          1985
                 Duluth-Superior          253.3          277.2         267.6         332           376           430

                                           Average Annual Rate of Growth (in percent)
                                       MetroRolitan Resident Populatinn - Lake Superior
                         Area            1950-66       1966-75       1975-80        1980-85       1966=80       1966-85
                 Duluth- Superior          0.3            2.4           2.4           2.7            2.4           2.5

                  Economic and Demopraphic Projections for States and Metropolitan Areas, Projections
                  to 1975, 1980, and 1985 of Populations Income and Industry Employment. Regional
                  Economic Projections Series, Report No. 63-@,-l, National Planning Association,
                  (Washington, D. C.), January 1969, pp. S-20-24 and 148-152.

                                                                                      11-14

              shoreline uses as seen in Figures 7 and 8. About 62% of the Lake Erie shoreline
              is developed for urban purposes, in comparison to 23% of the Lake Superio r shoreline.1

              The contrast between Lake Erie and Lake Superior is further characterized by the

              intensive urban development along large portions of the shoreline of Lake Erie and

              the vast reaches of open coast surrounding Lake Superior. The latter is interrupted

              by the one fiarly large urban area at Duluth and Superior and a few lesser cities

              such as Ashland, Houghton, and Marquette. The waterfronts of the large urban areas of

              Buffalo, Erie, Cleveland, Lorain, Sandusky, Toledo, and Detroit -- as is also the

              case with many of the lesser cities and towns in between -- are typically heavily

              industrialized with high-volume port facilities and basic processing plants for raw

              resources. Approximately 10% of the Lake Erie Basin land area is urbanized and
                                                                           2
              another 5% is used for roads, railroads, and other utilities. The 62% urban shore-

              line frontage further emphasizes the trend that urban activity in the basin is con-

              centrating along the shoreline.   The most striking feature about the Lake Superior

              shoreline is the vast@amount of agriculture and silvaculture, and undeveloped fron-

              tage. Powever, most of the hinterland to this shoreline is second growth forest lands

              which are nearing maturity for potential use as pulpwood and lumber. Since it is

              to be anticipated that timber harvesting operations will be conducted along the

              coastal zone and adjacent hinterland within the next 10 to 20 years,then safeguards

              should be established at an early date against adverse environmental impacts, es-

              pecially water pollution which often accompanies this industry.

                  Urban development on the Canadian side of Lake Erie is less intense, with the

              major urban area located at 11indsor (across the Detroit River from Detroit) and

              Included in "urban" purposes is recreational (local/private), residential, commer-
              cial, and industrial.
              2
              Water Oriented Outdoor Recreation: Lake Erie Basin. U.S. Bureau of Outdoor Recrea-
              tion., Ann Arbor, 'Michigan, August 1966, p. 2-1.

                                                                                             11-15

                                            \Residential
                                             \(Seasonal)

                                                  7.8%
                                   Recreation
                                      '
                                       (Local/
                                          Privat\e)                Residential
                              Recreation       7%                   (Permanent)
                                (Federal/
                                       State)                          29.4%
                                              5.8%

                           Fish &  Wildlife

                                  7%

                         T

                                     Undeveloped                     Commercial
                                                                         11%
                                         22.1%

                                                               Industrial\

                                                                   7%
                                                - --- ---------- 2.9-@

                                                          ,-Agriculture & Silvaculture

                   Figure 7.--The distributional pattern of shoreline use for Lake Erie in 1966

                   Source; U.S. Army Corps of Engineers, North Central Division, Chicago, Illinois,
                             (See Table in Appendix F: General U.S. Shoreline Use of Lake Erie and
                            Lake Superior 1966.)
                                   Recreat  ion
                                       Local,
                                           Priv..

                                    t
                             NRecreaon

                                       life

                                                                                          11-16

                       Recreation
                       (Local/Private) -IV, \Residential Residenti
                                              (Seasonal) (Permanen
                                                                    Cov@pe    >@ndustrial
                                                   7%        6%
                                                                    4.6%    2. 4%/

                               Recreation
                                  (Federal/
                                      State)
                           ...... . .      11%

                           Fish & wildife                          Agriculture &
                               5. 5%
                                                                   Silvaculture

                                                                       46.4%
                              Undevelop ed                                              /It!
                                  14.4%

                     Figure 8.--The distributional pattern of shoreline use for Lake Superior
                                in 1966.

                     Source: U.S. Army Corps of Engineers, North Central Division, Chicago,
                              Illinois, (See Table in Appendix F: General U.S. Shoreline Use
                              of Lake Erie and Lake Superior 1966.)
                                                                   a
                                                                  7 ,

                                                                                      11-17

             scattered urban development at the easterly end of Lake Frie near the Niagara River.

             The major Canadian urban concentration on Lake Superior is at Sault Ste. Marie.

             The entire Canadian population in the Great Lakes Basin totals less than 2 million;

             in which case, the pressure for water use and water quality management on the U.S.

             side of the Great Lakes Region would be on the order of 12 to 13 times higher than

             for the Canadian side.

                  Regional factors affecting use of the coastal zone.' The factors affecting

             growth and development in the coastal zone of Lake Erie and Lake Superior may be

             examined from three aspects of marine science and technology:

                  (1)  The extent to which potential new uses of these resources can be intro-
                       duced or older uses expanded through a&D efforts in the marine sciences;

                  (2)  The extent to which R&D in the marine sciences can reduce conflict be-
                       tween multiple uses of these resources, or the possibilities of institu-
                       tional measures or allocative decisions to reduce or eliminate socially
                       objectionable or less desirable uses of an incompatible nature; and

                  (3)  Achieving a balance between exploitation and conservation of coastal zone
                       resources within a long-range planning framework.

                  The marked difference between the physical characteristics and the intensity of

             use of the shoreline of Lake Erie and Lake Superior wilf have an important bearing

             on the priorities of measures in marine science and technology affecting the optimum

             use of these coastal zones. It appears that the coastal zone around Lake Erie will

             continue to grow for the foresaeable future in population and income at a faster pace

             than that around Wke Superior with the exception of the Duluth-Superior metropoli-

             tan area mentioned earlier. However, the rates of growth of the respective coastal

             zone regions and the quality of life achieved therein will depend in large 'part on

             the manner in which the natural resources of the lakes are used -- or misused. Pop-

             ulation and capital are in a sense renewable like many of the physical resources in

             the coastal zone. Nisuse of human and capital resources can often be corrected,

                                                                                       11-18

             as is the case of misuse of renewable physical resources. The idea of applying

             conservation to the use of nonrenewable resources is reasonably well understood.

             After these are once used or abused, recovery is almost impossible. However, as

             renewable resources are taxed beyond their ability to restore themselves at the level

             of maximum sustainable yields -- such as soil erosion, timber cutting, or the filter-

             ing and purifying action of a stream -- they begin to take on the characteristic of

             nonrenewable resources. This means that in the classical sense of "land, labor,

             and capital" providing the foundation for growth and development in the coastal zone,

             the intensive demands being placed on the physical resources in the coastal zone of

             Lake Erie has virtually thrust many elements of the resource system -- such as the

             water supply -- into bhe category of a nonrenewable resource. Unless remedial ,

             action is taken to re-establish certain natural relationships and balance including

             the human activities conducted within these balances (even if artifically estab-

             lished and maintained), severe limits may be placed on the economic growth of the

             region as well as the more restricted coastal zone of Lake Erie. This problem is

             compounded by the natureof political, social, and economic realities which often do

             not admit of the partial regeneration of certain natural resources -- including as-

             pects of eutrophication    even where such might be (or become) technologically

             feasible.

                  To examine in greater detail the factors affecting the use of coastal zone re-

             sources requires an additional distillation of'uses based upon-their' impact on. the.

             coastal zone environments From this organization of coastal zone uses, measures In

             marine science and technology for achievin,-, optimum use may be derived, as has been

             done in the analysis in Part III.

                 Another transition is occurring in the urban waterfront areas of the coastal

             zone, particularly along Lake Erie. While at the same time competition for port

                                                                                       11-19

              facility development is increasing, as discussed inthe following section on Trans-

              portation, demand for waterfront land for general Industrial use appears to be de-

              creasing. This is, in large part, due to the competition for relocating non-water

              oriented industry closer to hinterland market centers and along other transportation

              system modes. As these industries still require tranashipping facilities in many

              parts of the Great Lakes,       along with the growth of domestic and foreign trade,

              major port development programs have been initiated at Cleveland and Toledo -- to

              name just two examples.

                   The shifting of industrial land demands from waterfront properties has resulted

              in the underutilization and actual abandonment of what appears to have been numerous

              wharf and dock facilities and waterfront sitesf6-r,- defunct industry. These spaces

              offer opportunity (if these can be made available) for rehabilitation for expansion

              of water-oriented industries and transshipping facilities -- reducing the need for

              additional filling of large tracts or expensive redevelopment of other urban uses.

                   Also associated with the possible availability of some of industrial lands,

              which had heretofore had priority use of the shoreline because of the economics of

              industrial land values and early dependence on water transportation, is demand for

              recreation and residential use. This 4emand is being exploited by many local author-

              ities to develop waterfront areas, both through utilizing land that can effectively

              meet certain residential land and recreation access needs, as well as attempting to

              reconstruct economic activity on these derelict waterfront lands.

                   There are at least two factors which appear to inhibit significantly the pro-

              gress in the transition of residential and recreational use of waterfront lands.

              The first is that many of these lands are still fairly expensive. The central city

              housing market near where these waterfront sites are becoming available reflects the

              two extremes of high-income families and moderate to low-income families. Consequent

                                                                                       IT-20

              provision of high-rise apartments for lower income housing has not proved successful

              without relatively extensive construction costs or rent-subsidy programs. On the

              other hand, high-quality housing facilities for higher income markets are better

              able to demonstrate economic feasibility and are becoming a more prevalent occurrence.

              In either case, the only progress which has been made or contemplated in the near

              future in the relatively large-scale redevelopment of urban waterfront areas -- other

              than specific port authority projects -- involves the assistance of Federal urban re-

              develo                               This raises the question of social equity asso-
                   . pment program funds-

              ciated with using public monies to encourage the development of economic enterprises

              or to respond to other current social needs in these urban waterfront areas. This

              latter question already has been subject to considerable debate within the Federal

              urban redevelopment program, and is one which will need to be considered in the de-

              velopment of program objectives for use of waterfront resources within the context

              of a marine sciences program.

                   The second factor which appears to be a significant inhibitor to the waterfront

              redevelopment is water pollution. There were many beaches which have been completely

              abandoned because of pollution. Additionally, the unique aesthetic and recreational

              qualities of the shoreline and river banks -- adjacent to the aforementioned residen-

              tial developments, for instance -- were not fully utilized. Little or no particular

              attention was given to treating the landscape or development of the aesthetic qual-

              ities, or providing access to the water for direct human use, such as sT.,Timming.
               which were frequently encountered in these development projects. The fact
              An exception was marinas/that the pollution was there, and had been there for some

              time, and that pessimistic attitudes prevail with regard to pollution abatement in

              the foreseeable future, fosters an attitude of discouragement over the treatment of
              waterfront development for human access to the water.1 Indeed, it would appear
              iFor a brief review of the pollution and the popular attitudes associated with the
              problem, see: "Blighted Great Lakes@', pp. 36-45, and "Sewage Gushes On, But Some-
              thing Is Being Done", Richard Woodbury, pp. 46-47, Life, August 23, 1968.

                                                                                       1-21

              that,should pollution along these shoreline and rivers be effectively abated, demand

              for waterfront access would cause a new flourishing of development activity and land

              use pressures.

                   An observatinn relative to the concept of "conflicting use" deserves mention.

              Along the U.S. shore of Lake Erie, one encounters a number of small marinas and parks,

              or simply vacant spots which have reverted back to a wildland state. These sites

              were found sometimes delicately nestled in a corner of a large port facility, or

              between two large ore boat slips, or next to a huge iron ore and coal unloading and

              storage facility. Normally, one would not consider these uses "compatible". But

              whether by accident or ingenious design, these appeared to add an interesting and

              refreshing variety to the urban waterfront landscapei as well as appearing to be

              successfully integrated with the surrounding usesThese examples remind us that in

              the grand schemes of designing broad institutional frameworks to effectively segre-

              gate conflicting uses of the shoreline , there should be sufficient flexibility to

              promote thoughtful and well-designed exceptio ns.

                   On the basis of their impact on the coastal zone, the present and potential

              uses of the coastal zone of Lakes Erie and Superior may be generally categorized as

              follows -

                   (1) Uses of the lake waters and resources of the lake, lake bed, and sub-floor:

                        * Fresh water supplies for municipal, industrial, and utility uses, in-
                           cluding agricultural needs,

                        *  Hydroelectric generation (flows),

                        *  Receptacle for waster substances (liquid and solid),

                        o  Transportation (shipping and navigation),

                        *  Extractive uses (commercial and sport fishing, aquatic plant harvest-
                           ing, sand and aggregate minerals for construction, oil and gas);
                        *  Recreation (aesthetics, boating, swimm@rl g, and fishing);
                    2)  Water-oriented uses of the coastal margin.

                                                                                       11-22

                        �  Extractive industry base (fish-processing plants,@mineral extraction
                           plants and spoil banks, and aquatic plant harvesting bases),

                        �  Water-oriented industry (shipbuilding and repair, port facilities and
                           rescue services, warehousing, and manufacturing and processing),

                        �  Utilities (power plants, water supply intakes, sewage treatment plants),

                        �  Recreation (beaches, resorts, recreation-oriented residential uses,
                           parks and other open spaces),

                        �  Varine research institutions,

                        �  Urban uses (waterfront housing, waterfront commercial),

                        �  Agriculture (speciality crops such as vineyards and fruits),

                        �  Wildlife conservation areas;

                  (3)   Nonwater-oriented uses of the coastal land margin:

                        � Urban (commercial, residential, public and institutional, and utilities),

                        o  Transportation facilities,

                        �  Industrial,

                        �  Agricultural,

                        �  open space (parks, recreation areas, flood plains, other public and
                           private reserves),

                        �  Unclassified or undeveloped.

                  For purposes of distilling measures in marine science and technology for achiev-

             ing optimum level of use in the above categories of coastal zone use, the following

             organization was developed for use in this study:

                  (1)   Water quality and control: (a) eutrophication and algal growth; (b)
                        measurement of pollution and effects; and (c) pollution controls and
                        waste-management by sources.

                  (2)   Modifications of the coastal zone: (a) land fills; (b) dredging and ex-
                        cavation;(c) shoreline erosion and protection; (d) port and harbor de-
                        velopment.

                  (3)   Social and economic uses of the coastal zone: (a) transportation; (b)
                        recreation; (c) commercial fisheries; (d) mineral resources; (e) agri-
                        culture and forestry; (f) industrial development; (g) urban development;
                        (h) power development; and (i) water resource mangement.

                                                                                      11-23

                  it should be noted that some of the factors affecting use of the coastal zone

             and the measures for marine science and technology discussed in the following see-

             tion will have general applicability to all of the Great Lakes -- or even to the

             United States or the world at large, as in industrial water and air pollution.

             Others will be tailored to the more or less unique aspects of Lake Erie or Lake

             Superior. Moreover, some of the required research will be in the field of the social

             sciences. This is particularly important with respect to planning analysis and re-

             search measures since the interaction between man and the environment of Lakes Erie

             and Superior involves the problem of goal-setting in resource development and the

             resolution of conflict situations in resource utilization.

                  It has been possible to explore only a fraction of the complex relationships

             of man and the marine enviornment in a work of this level of effort. The selection

             of key items for analysis has been made on the basis of reve1w of the literature;

             interviews with public officials, scientists, engineers, and technicians of govern-

             ment and industry; the use of project consultants residing in the region; and the

             judgment of the contractor, whose experience was broadened by an extensive field

             survey of the study area. The final portion of this study includes a'brief dis-

             cussion of a methodology and criteria for further refining the selection process for

             identifying priority measures in marine science and technology needed in the coastal

             zone.

                              REVIEW OF PROGRAM REQUIRENEUTS TO SUPPORT OPTP-121 USE

                                            Water Quality and Control

                   Overall environment Rolia.--The rising national concern over maintaining and,

              In many cases, restoring the quality of the environment provides the basis for em-

              phasizing actions for enhancing the quality of the coastal zone environment around

              Lakes Erie and Superior. In this regard, Senator Muskie states:

                   A new philosophy in directing the nation's efforts for a clean and healthy en-
                   vironment is shown in both the Water Quality Act of 1965 and the Air Quality
                   Act of 1967. Pursuant to those laws, the Federal Government supplies leader-
                   ship and creative resources, as well as research and construction funding.
                   The states retain the primary responsibility for developing water and air
                   quality standards. Federal law provides a framework around which the states
                   can organize their pollution control efforts and mechanisms by which their
                   goals can be implemented. In essence, these laws have stimulated meaningful
                   state control pro-ramso

                   Similarly, a report of the Task Force on Environmental Health and Related

              Problems spelled out in June 1967 a series of 10 goals to provide for the optimum

              health of the American people which has particular significance to the coastal zone

              environment of Lake Erie. The Task Force recommended that the Department of HEW

              ensure that every American can thrive in an attractive, comfortable, convenient,

              and healthy environment by: (1) controlling pollution at its source,'(2) reducing

              hazards, (3) converting waste to use, and (4) improving the aesthetic value of man's
              surroundings.2  The Task Force on Environmental Health and Related Problems also
                                                                     3
              recommended 10 action goals for environmental quality:

                   Goal 1: An air quality restoration effort'to initiate by 1970 in 75 inter-
                            state areas, abatement plans to reduce plant stack emissions by 90%

              .A.
              Mushie, Edmund S., "The Challenge of Pollution Control: TAlhere We  Stand", Chemical
              Engineerina, October 14, 1968@, p. 17.
              2
              A StratM for a Livable Environment, U.S. Department of Health,      Education, and
              Welfare, Washington, D. C., June 1967, p. xv.

              Ibid., xvi-xvii.

                                                                                                111-2

                             and to establish national standards to reduce vehicle exhaust emis-
                             sions by 90% from 1967 levels through enforcement, and a technological
                             development program to provide the equipment necessary to meet the
                             standards.

                   Coal 2:   A water quality effort by 1970 to test all existing and proposed
                             public drinking water supply systems and produce meaningful public
                             drinking water standards which, through an enforcement program,
                             will ensure health-approved drinking water for 100% of the Nation's
                             public systems.

                   Goal 3:   A waste disposal effort to provide by 1973 a grant-in-aid program for
                             solid waste disposal at the local level; developmental research pro-
                             gram to integrate solid and liquid waste disposal and air quality con-
                             trol; and for the disposal of nuclear wastes.

                   Goal 4:   A population research effort to determine by 1968 the effects of pop-
                             ulation trends on environmental protection goals and programs as part
                             of the basis for setting denartmental objectives with respect to
                             family planning and 'Population dynamics.

                   Goal 5:   An urban improvement effort to develop by 1973 through research
                             basic data sufficient to establish human levels of tolerance for
                             crowding, congestion, noise, odor, and specific human endurance
                             data for general stress and accident threats, including traffic,
                             home, and recreation accidents.

                   Goal 6:   A materials, trace metals, and chemicals control effort to estab-
                             lish by 1970 human safety levels for synthetic materials, trace
                             metals, and chemicals currently in use and prohibit after 1970
                             ,-eneral use of any new synthetic material, trace metal, or chemi-
                             cal until approved by the Department of Health, Education, and
                             Nelf are.

                   Goal 7:   A consumer protection effort which by 1970 will initiate a compre-
                             hensive program for the identification of health and safety hazards
                             associated with the use of applia-aces, clothing, food, hazardous
                             substances, and other consumer products and for the control of such
                             products which fail to meet consumer protection standards established
                             by the Department.

                   Goal 8:   A radiation control effort T@Yhich by 1970 through developmental re-
                             search and enforcement adequately protects workers and the public
                             from harmful radiation levels.

                   Goal 9:   An occupational disease and safety protection effort to extend by
                             1970 preventive services to 100% of the employed population at its
                             work place.

                                                                                            111-3

                  Goal 10: A governmental compliance effort which by 1969 through effective
                            relations with local, state, and Federal governments will ensure
                            that criteria and standards for physical and mental health for
                            housing, urban development, and transportation will be available
                            and used by the Federal agencies administering these programs.

                  Goals 1, 2, 3, 5, 8, and 10 are particularly significant to this study because

              they deal with areas of concern to the marine sciences with respect to the manner

              in which the coastal zone is developed. Along the lines of the specific strategy

              recommendations of the Task Force on Environmental Health and Related Problems,

              included in Appendix C, an Institute of Environmental Health Science has been set

              up in the Department of Health, Education, and Welfare with two major missions*

              (1) to find the size and meaning of hazards to human health inherent in long-term

              exposure to low-level concentration of biological, chemical, and physical environ-

              mental agents; and (2) to study the adverse effects with the hope that principles

              related to this response can be established as a scientific base for criteria on

              which to set standards and to provide predictive guides to be used by control ageu-
              cies for protective or preventive measures.I  These are,indeed,roles that need to

              be played in the coastal zone. Other steps called for by the Tasic Force have been

              taken in the Great Lakes by other agencies, such as the FTTPCA follow-through on

              cooperation with states around Take Erie in setting and achieving water quality con-

              trol standards by 1972.
                                                                                           2
                  A Presidential Task Force on Resources and the Environment in early 1969 urged

              that improved environmental management be made a principal objective of the new

              Administration because "the real stake is man's own survival -- in a world worth

              11ving in", and stressed the need to improve "the declining environmental quality

              of our urban areas" where most of the population lives. This objective expresses

              Air & Water News, January 20, 1969, D. 4.
              2
               Nixon Panel Reports on Environment", @cience, February 7, 1969, p. 549.

                                                                                             111-4

             ;the need for environmental improvement around Lake Erie shor6line. While the

             Task Force concluded that "the present fragmentation, piecemeal approach, inade-

             quate coordination, and lack of central policy direction and control of environ-

             mental programs constitute an obstacle to their effective implementation", it did

             not suggest any panaceas or mammoth new programs or any major reorganization of

             government programs without a thorough study. The Task Force called for four major

             steps: (1) that the President appoint a Special Assistant for Environmental Affairs

             who would serve as a "focal point" for the Government's scattered environmental con-

             cerns and who "would evidence dramatically the new Administration's concern for a

             better environment"; (2) that the present interagency Council on Recreation and

             Natural Beauty should be broadened into a Council on the Environment with the Vice

             President continuing as Chairman; (3) that each Federal agency whose program acti-

             yities significantly affect the environment, sucl as highway construction, should

             establish a "focal point of environmental responsibility" to take into account the

             side effects -- such as air pollution -- which are the program responsibility of

             completely separate agencies; and (4) that existing programs be made to work better

             through graatly increased appropriations, better corrdination, new regional approaches,

             and a strenathened role for industry and for state and local governments. Consider-
                        Lr@

             able actions to carry out these similar goals for environmental protection are al-

             ready being taken. For example, numerous lakeside communities have programs to im-

             prove sewage treatment and to extend treated sewage discharge pipes a greater dis-

             tance from.shore reducing pollution and algal growth in ne-arshore waters. Various

             industrial plants have also undertaken projects to curb pollutants being discharged

             into the lake. A major program has been initiated by Cleveland involving a large

             sewer and treatment plant construction program, and in cooperation with the FI1TPCA,

             is exploring alternative methods for waste water disposal. The State of T-Tisconsin

                                                                                             111-5

             in 1965 enacted a comprehensive water resource program which provides for coordinated

             flood plain and shoreline zoning and in providing incentive to industry to solve

             its part of the pollution problem. Also, the Department of Interior has established

             a Branch of Urban Affairs in the Bureau of Sport Fisheries and Wildlife; and an

             Office of Environmental Impact has been established in the Department of Transporta-

             tion. From the Federal viewpoint, the responsiveness to environmental problems
             which these offices car provide their parent organization6 needs to be specifically

             directed at the operational programs which these agencies conduct in, the Great Lakes

             Region.

                  In April 1969, President 'olixon announced his intention to establish by execu-

             tive order a cabinet-level Environmental Quality Council composed of the President

             and the Vice President, and the Secretaries of Agriculture; Health, Education, and

             Welfare; Housing and Urban Development; Interior; and Transportation. The establish-

             ment of the Environmental Quality Council is part of the announced Administration's

             commitment to "a national policy of defining in law the rights of Americans to have
             clean air, clean water, and other ingredients of a healthy environment."  1  The

             question has not been decided as to what direction will be taken to restructure the

             government in order to implement the declaration, particularly in view of congress-

             ional interests in an independent Council on Environmental Quality as well as an

             independent environmental surveillance group to forecast troubles such as air and

             water pollution stemming from technological advances. It has been suggested that

             such an analytical body be formed around the science policy group in the Library

             of Congress and provide an independent check on the controversial projections on

             environmental impact provided by various sources. It has also been suggested that

             1
              Mintz, Morton, IfEnvironmental Council Planned", The 1@7ashington Post, April 17, 1969,
              Washington, D. C., p. A-2.

                                                                                             111-6

              the analytical body be conceptually organized as a fourth  body of government purely

              for the purpose of analysis and review that is independent of the courts, CongressP
              and the Executive Branch.1

                   The issue of protecting the environment at this time appears to be a combina-

              tion of political constituencies, governmental administration, and determination

              of accurate scientific information upon which judgmental decisions may be made on

              environmental policy, regulation, and action programs. It is not in the purview

              of this study to re-examine national objectives on environmental quality; however,

              it is of key concern that the application of national objectives on a regional and

              local basis will reflect considerable differentiation in policy and program a6eions

              from one area to another. Yational objectives on environmental quality will pro-

              vide guidelines for setting priorities for water and air qualit@r control measures

              in the Great Lakes; but certainly priorities will vary, say, between the Lake Erie

              Basin and the Lake Superior Basin. In this instance, emphasis would be placed on

              preventative measures in the Lake Superior Basin and restorative measures emphasized

              in Lake Erie. The key question in this context is "Where will the decision be made

              for regional application of environmental policy?" The mechanism is evolving in

              the Great Lakes through the Great Lakes Basin Commission to coordinate Federal,

              state, and local interests in environmental control measures in response to a

              61national commitment" for preserving environmental quality.

                  This, in turn, raises new questions: "Can the Great Lakes Basin Connission

              develop the political constituency to carry out effectively a national commitment

              in its region?   Can the Great Lakes Basin Commission organize effectively to co-

              ordinate the follow-through on environmental policy? Can adequate scientific data

              Air & I-later News, March 10, 1969, p. 6.

                                                                                             111-7

             and expertise be made available to facilitate decisions to do the job in the face

             of conflicting interests and an atmosphere of controversy?"

                  While the desirability of the Great Lakes Basin Commission playing a role in

             coordinating regional planning and decison-maling was discussed earlier, the answer

             to the above questions are still to be resolved. As mentioned, individual Federal

             agencies, individual states, and local areas have become concerned with various as-

             pects of environmental quality and have ta'Len 'large steps toward environmental pro-

             tection measures; however, these efforts are still largely organized and supported

             on an individual jurisdictional or functional basis.- While popular support appears

             to be growing for the Great Lakes Basin Commission, it does not yet appear to be

             playing a significant role in tying. together,voluntarily committed coordinated ef-
             forts to rally the critical mass of effort that it is really going to take to "Save

             Lake Efte" or "Preserve Lake Superior" -- assuminp- these become operational re-

             gional objectives. As the advantages of regional cooperation become accepted

             as well as being recognized as "needs" -- in state and local areas, the outlook will

             substantially improve for the Great Lakes Basin Commission (and the other regional

             6rgauizations which may become affiliated with the concerted process) to become an

             effective agent to establish and to spark the accomplishment of regional goals.

                  Waste management in the coastal zone.--The problem of water quality needs to

             be examined In the context of an overall waste management re,&,ime for the densely

             populated coastal zone of Lake Erie. According to a recent Massachusetts Institute

             of Technology study, about 5 pounds of solid refuse accumulate per person each
             day.1 Accordingly, roug
                                     ,hly 21,000,tons of refuse emanate daily from the major met-

             ropolitan areas around Lake Erie. As coastal zone population continues to expand

             1.
              flWaste Disposal Field Alive Uith N-,q,..7 Ideas", Nation's Cities, December 1968, p. 28.

                                                                                                111-8

              and as onland sites for disposal of solid wastes diminishes, it can be seen how the

              lake itself will become increasingly attractive as a convenient receptacle for

              these wastes. Suggestions for new approaches to waste management include the
              following:I

                   *  Small towns (as well as metropolitan areas) could cut costs by using regional
                       I
                      P@ants to dispose of re se. Ten times as much waste could be handled at
                      half the cost in th       erative manner.

                   *  Silent crushers, which look like concrete mixers, could make household
                      collections.

                   *  Trash could be used to fill low land along highway shoulders and, thus, re-
                      duce accidents.

                   *  Salvagable materials such as paper, rags, glass, and metals could be resold
                      to industry and leftover refuse used as compost.

                   *  Empty shafts and open pit mines could be used as sanitary land fill sites.

                   *  The use of no-deposit, no-return packaging in certain products could be
                      prohibited.

                   Some of these approaches are already being explored by govermment and industry

              in the coastal zone of Lake Erie and Lalke Superior. For example, a coal pipeline

              is being tested for pumping solid wastes from Cleveland    to a strip mine 100 miles
              away-2 The City of Cleveland is also investigating the     possibility of solving sev-

              eral of its waste disposal problems while putting a new product in the hands of en-

              gineers charged with reclaiming submerged lands in Lake Frie. The idea is to compact

              bricks from various waste materials and use them to build dams and retaining walls

              for under-lake structures, such as an extension of the Lake Front Airport runways

              or an addition to Westerly sewerage treatment plant which is to be built on a man-
              made island in Lake Erie.3 Another idea is to design large-scale production ponds

              1
              Ibid..
              2.
              Air & Water News, January 27, 1969, p. 4.

              Ibid..

                                                                                              111-9

              to cultivate algae on wastes. The algae may be a promising protein supplement for

              livestock feeds. Current estimates are that algae grown on waste will cost about

              6#,4 per pound dry weight which is less than half the cost of other sources of feed

              grade animal protein supplement.

                   Another problem is the difficulty in management of industrial wastes. Hoitrever,

              R&D in some of the most difficult of industrial waste management problems is already

              proving successful. For instance, it has been found that mixing acid mine drainage

              waters with sewage effluent under certain conditions has significant advantages in
                                                    2
              treating both types of waste streams,    Bringing these two types of waste streams

              together: (1) brings the acidity of the mine drainage water down to acceptable

              levels, (2) reduces by as much as 98% the iron salts which contribute to the acidity

              and discoloration of the vater, and (3) significantly reduces the phosphate content

              of the sewage effluent. The method could be incorporated into conventional sewage

              treatment plants with no major new investments and no loss in treatment capacity.

              Moreover, studies have shown that the flocculating properties of the ferrous pre-

              cipitates produced may increase the efficiency of certain treatment steps to the
              extent that actual increases in capacity could result. 3  Althoug
                                                                               ,h no specific appli-

              cation of this technique is Imown In the Great Lakes Region, this principle could

              possibly be applied to the conveyance of various industrial wastes through municipal

              treatment systems. In the design of individual industrial waste treatment systems,

               Oswald, Wilbain J.; Golveke, Clarence G.; and Cooper, Robert C., "Designing for
               Large-Scale Algae Production From Waste", Paper presented at the 41st Annual Con-
               ference of the Water Pollution Control Fed,Septe-nber 22-27, 1968, Chicago, Illinois,
               Water Pollution Control Administration, Washington, D. C..
              2
               11 @Iixing Se-vage With Acid Hine Water Solves Two Problems", Environmental Science and
               Technology, Vol. 2, No. 9, September 1968, p. 655.

               Ibid..

                                                                                                III-10

               waste materials that can be neutralized with municipal sewa"'@e materials could be

               directed into the municipal systems, with possible savings accruing to both the

               industrial treatment system -- by way of capital savings -- and the municipal sys-

               tem in terms of enhanced efficiency in achieving water qualitV goals for the area

               and helping to speed industry along in doing it job.

                    Air pollution control in the coastal zone.--Air pollution is becoming an in-

               creasing problem around the major metropolitan areas along Lake Erie. The first

               major effort to develop regional air pollution abatement programs was initiated

               with the enactment of the Clean Air Act of 1963. This Act established provisions

               for Federal financial assistance to state and local agencies for developing, estab-

               lishing, or improving air pollution control programs. All of the states contiguous

               to Lakes Erie and Superior have enacted air pollution measures which are summarized

               in Appendix D. The Air Quality Act of 1967 went further in calling specifically

                                                                                                  1
               for a regional approach to the control of air pollution in four principal areas;

                    *  Establishment of criteria of ambient air quality which describe scientific-
                       ally the effects on health and-welfare for varying concentrations of a con-.
                       taminant, or contaminants, under different atmospheric conditions.

                    *  Setting of enforceable ambient air quality standards based upon the air
                       quality criteria.

                    *  Development of plans for air quality control reg -ions, to implement the
                       established ambient air standards giving due consideration to factors of
                       technical and economic feasibility.

                    *  Provision of required stimuli to industry and government to Improve emis-
                       sion control technology to the degree required to prevent and abate air
                       pollution.
               Senator 'Huskie also states in this regard:2

                    The Air Quality Act emphasizes maximum state participation in air pollution

               Goulding, Clark L., "Regional Approach to Air Pollution Abatement Gains Momentum",
               Environmental Science and Technology, Tlay 1969, pp. 431-434.

               Muskie, oRe cit., p. 17.

                   control, but does not deal in detail with the concept of political organi-
                   zation for an air q'uality control region. In ord6r to be effective, an
                   interstate regional authority must have all of the legislative authority
                   vested in the participant state agencies, plus a sufficient delegation of
                   sovereignty to operate effectively.

                   It may be that a new kind of regional agency is required to perform the
                   type of police action needed by the Act, perhaps some new and flexible com-
                   bination of jurisdictional and institutional arrangements.

                   Air quality control regions have been designated at Detroit and Toledo, and

              designation is imminent for Cleveland and Buffalo by the I'ational Air Pollution Con-

              trol Administration. The designation of air quality control regions is part of a

              complex, but carefully designed, system ultimately involving the private sector as
              well as all levels of government.1  These air quality control regions were designated

              on the basis of the severity of the problem; and it is the NAPCA hope that once the

              states experience the benefits of approaching air pollution on a regional basis, they

              will adopt on their own initiative regional approaches to conservation of the region'

              air resources. The NAPCA will encourage states not only to develop air pollution

              programs on a regional basis, but also to propose to us boundaries for those areas

              they think should be formally designated as air quality control regions.

               Goulding, op. cit., p. 432. In addition to designating air quality control regions,
               the Secretary of Health, Education, and VTelfare       issues air quality criteria
               and reports on control techniques. For each pollutant covered by the requisite cri-
               teria and control technology documents, every state involved in a designated air
               quality control region must set an air quality standard for that pollutant and de-
               velop a plan by which the standard will be implemented. Each state notifies the
               Secretary of HUI of its intent to develop a plan within 90 davs of the issuance of
               the two documents, or its intent to designate a region,w1hicinever comes last. Then,
               each state has six months to set air quality standards and another six months to
               develop an implementation plan. This process meets the first 3 points outlined
               above. Expanded research responsibilities, the fourth point, along t-rith the first
               three, are the heart of the Air Quality Act of 1967. This process is also backed
               up with authority of the HOUT Secretary to take appropriate action in cases 4here
               the above sequence breaks down. The above procedure, as well as NAPCA's related
               administrative policies, is described in detail in a forthcoming publication en-
                       "Guideline for,the Develonment of Air Quality Standards and Implementation
               titled,
               Plans". Bridging the gap between the responsibilities of NAPCA and those of the
               states, the document will be essential to success of the Air Quality Act.

                                                                                          111-12

                  Local jurisdictions are also beginning to take firm steps to elevate air pol-

             lution. Cleveland, for instance, is developing a tougher air pollution law and

             intends to spend nearly $2 million on the city's control program-over the next three

             years. TTew regulations will include particulate emission limits and limits on
             sulfur as S02. The Mayor of Cleveland stated-.1

                  In the past, the city's ability to cope with industrial red dust and other
                  air pollutants has been so unworkable that since air pollution laws were first
                  put on the books in 1926 not.a single violator has ever been brought to court.

             Local coutrol also enables a flexibility in tailoring programs ee they may be easily
             altered to fit new needs.2

                  The discipline and programs in the marine science concerned with meteorology;

             the land, air, sea interaction; and environmental monitoring systems should be in-

             volved in the process of designating air quality control regions, analyzing the basic

             data on air quality, and setting the objectives and standards for air quality in the

             coastal zone region.

                  IMlications for national programs in water qualitl control.--With respect to

             water quality problems, the nation has embarked on a program comprising a number
             of basic elements:3

                  (1)  Establishment of water quality standards throughout the country.

                  (2)  Creation of regional plans to anticipate and meet the future water needs
                       of vast metropolitan growth.

                  (3)  Sharp increases in Federal aid to municipalities for construction of waste
                       treatment plants.

                  (4)  A new awareness of the vital importance of accelerating research in the
                       water pollution field and strong Federal support for this research.

              Air & Water News, April 21, 1969, p. 4.
             2
              Chass, Robert L., "Control at the Local Level", Chemical Engineering, October 14,
              1968, p. 22.

              Jones, Robert E., "Pollution: How the Federal Act 14ill Felp Bring Clean Waters",
              Nation's Cities, March 1967, pp. 36-37.

                                                                                            ITLI-13

                  (5) A tougher attitude toward the i-ridustrial pollutor.

                  (6) Increased emphasis on the concept of Federal, state, and local partner-
                       ship in the task to get clean water.

                  The Water Quality Act of 1965 is the basic action tool for this program. The

             Act places upon the states the initiative for setting water quality standards for

             the portions of interstate rivers within their boundaries. If they fail to do so,

             the Federal Government has indicated it will do it for them. Establishment of water

             quality standards will provide the guidelines for preventive, not simply remedial,

             action. Once the standards are set, municipalities and industries may develop re-

             alistic plans for new or eXDanded treatment facilities with greatly reduced uncer-

             tainty about,waste disposal requirements.

                  The growth of population and economic development -will put further pressure on

             the Great Lakes for a source of fresh water and as a receptacle for the waste by-

             products of this growth process. The preservation of the quality of water for these

             purposes involves two complex and interrelated webs: an ecological web of chemical

             and biological causal links, and a social web of user activities.

                  Waterborne waste disposal methods in use today are based upon the biological

             processes in natural waters that can break down wastes into their basic organic nu-

             trients or dilute inorganic materials so they are harmless. The Great Lakes and

             their tributaries and connecting channels have provided an inexpensive and conven-

             ient waste disposal system. Because of the large capacity of the Great Lakes system.,

             it was not until recent years that the great increases in waste effluent discharges

             (i.e., the return of water to the system at a lower quality level than that which

             was taken in) began to overload the natural biological system with the resulting

             consequences of pollution. La1ce Erie is the most dramatic  example of these conse-

             quences and is often referred to as becoming a 'dead" lake -- although it is still

                                                                                           111-14

             highly productive of trash fish and certain other aquatic life.

                  Waterborne waste inputs to Lake Erie have come from three primary sources:

             (1) waste effluents of toxic or offensive materials from industrial processes.; (2)

             municipal treatment plant effluents which are largely treated to "secondary" stan-

             dards; and (3) fertilizer and pesticide runoff into waterways from their increased

             use in agricultural production. Water polluting substances may be classified into

             eight general categories, each of which is somewhat unique in pollutional character-

             istics and effects: (1) oxygen demanding wastes, (2) infectious agents, (3) plant

             nutrients, (4) synthetic organic erotics, (5) inorganic chemical and mineral sub-
             stances, (6) sediments, (7) radioactive substances, and (8) heat.1
                  Goals for water quality programming in the Great Lakes include: 2

                  *  Reduction of waste loading as much as possible since the waters of the
                     Great Lakes are the final recipients of the waste and used waters from
                     the watershed.

                  a  Aesthetically acceptable waters, not offensive to touch, taste, sight, or
                     smell.

                  *  Consistent, high quality water for domestic, agricultural, and industrial
                    ,use,

                  *  A healthy commercial fishery.

                  *  A balanced ecological environment providing proper protection for fish.
                     and wildlife,.
                  *  Enhanced recr\eational use for boating, fishing, and water contact activities.

                  *  Responsible use of the waters for waste d-Isposal.

                  *  Continuing developifient of navigation and power use.

              A description of these pollution sulustances and their pollutional characteristics
              is included in Appendix B.
             2
                                             ality in the Great Lakes: Costs and Cost Sharing to
              Hennigan, ."%Obert D., 54ater Qu
                               @
                                 Y

                                co

                               je

              Meet Water Quality Goals", A paper presented at the Great Lakes Water Resources
              Conference, Toronto, Canada, June 24-26, 1968, State University of @-Jew YorR, Syra-
              cuse (Unpublished).

                   Eutrophication I is one of the major problems associated with water pollution,

              particularly in Lake Erie. The effluents form agricultural fertilizer;and municipal

              wastes subject to vecondary treatment are largely basic nutrients such as phosphates,

              nitrates, and other trace elements. This nutrient enrichment accelerates the process

              of eutrophication which even in natural circumstances is not totally avoidable. The

              nutrients which enter the lake from agricultural fertilizer runoff and urban waste

              treatment plants stimulate algal growth and further biological production. This

              process may sometimes be beneficial in increasing the yield of certain kinds of

              trash fish and perhaps could be steered to produce a valuable algae for food or drug

              production. Algal growth has occurred in such quantities as to be a nuisance in the

              form of gathering algae on beaches and consuming oxygen in water and killina fish.

              A major requirement of the Water Quality Act of 1965 is the universal application of

              secondary treatment of municipal wastes and the acceptance of comparable standards

              by industry.

                   Chemical and other inorganic materials from industrial effluences are, for the

              most part, stable pollutants. These can principally be rendered harmless if ade-

              quately diluted. Agricultural pesticides entering the lakes have a more subtle, and

              perhaps more disturbing, effect on the water. For instance, they may accumulate in

              some aquatic organism's..,and pass throug@h fish and fish-eating birds and lead to in-

              fertility and even death. The    accumulation of DDT in eggs now threatens the spec-

              tacularly succes'sful coho salm...'-fishery,and pesticides in Lake Superior are a

              1
               "Eutrophication" is  a process involved in the natural aging of a lake which is char-
               acterized by high rates of algal growth stimulated by nutrient enrichment of the
               lake and resulting in seasonal oxygen deficiencies and promoting shallowness over
               millenia of-years. Mhenever:,man-made wastes or nutrients are added, this can
               greatly acc, erate the natural process as already 'has happened in Lake Erie.

                                                                                              111-16

             threat to the population of certain species of fish-eating eagles.   I

                  There is now a great range in the water quality between Lake Erie and Lake

             Superior. Changes will depend to a large degree on the population pressure in the

             watershed -- both in terms of the Great Lakes drainage basin system as a whole and

             the respective watersheds for each lake, such as Lake Erie and Lake Superior. In

             each of these two basins, there is considerable difference in quality between near-

             shore and offshore waters, which may persist for much of the time. This is particu-

             larly true for Lake Erie in its shallower, western end. Differences may appear be-

             tween inshore and offshore, as well as from the western end of the lake to the eas-

             @ern end. The mechanism of exchange between inshore and offshore water requires

             further study -- and in the case of Lake Erie, lake circulation from one end to the
             other.2

                  it may be assumed that the trends of population growth (especially concentration

             in the coastal zone),increasing urban and industrial development, and the correspon-

             ding incroaae of waste by-products will continue. However, the present pattern of

             waterborne waste disposal will need to be controlled or managed within tha*10.ad

             limits of the lake.'s system. Otherwise, the continuation of the processes of eutro-

             phication and pollution -- especially in Lake Erie -- will curtain the availability

             of water of adequate quality to support use and reuse.

                  Remedial measures to restrain pollution and, hence, eutrophication will largely

             involve the following systems which are still experimental and highly conjectural:

                  (1) Introduction of tertiary waste treatment. This level of sewage treatment
                       involves removal of phosphates and other growth promoters       some of whicb

             1
              However, the State of Michigan has taken conservationist measures to mitigate this
              threat through-.-cert.Ain controls of the types of pesticides used in the region.
             2
                                I'The Great Lakes: General. C aracteristics, Multiple Uses, Univer-
              Mortimer, C. H.                              Ch
              sity Involvement", a paper presented at a hearing of the Great Lakes Panel of the
              National Council onlHarine Resources and Engineering Development, Ann Arbor, 14ich.,
              October 29, 1968.

                                                                                             111-17

                       are in extreme dilution. The process is expensive and difficult.

                  (2)  Controlling water quantity in lake levels and flows to dilute and trans-
                       port waste materials to the ocean.

                  (3)  The use of other disposal systems involving other than lake-oriented
                       waterborne disposal systems.

                       a.   Export of water out of the basin, such as using a large trunk col-
                            lector along the axis of the megalopolis.

                       b.   Complete oxidation of the solid particles in liquid wastes at temper-
                            atures and beyond present technology, inducing renewal of pure water
                            as a by-product, and final disposal of waste remains in underground
                            receptacles.1 (Other reusable products may be reclaimed).

                       C. Chemical decomposition, oxidation, or neutralization of waste materials.

                       d. Straining and precipitator devices -- using physical sraining and
                            filtering materials, electronic precipitator, or chemical additives.

                  With particular regard to the magnitude of pollution problems in Lake Erie,

             Dr. Robert A. Sweeney states that the lake is not a "dead lake", as it has been fre-
             quently misdescribed in numerous newspapers and magazines.  2 Today Lake Erie is more

             productive, in terms of the numbers of aquatic organisms, than at any time in its
             history.3  However, in many cases, the types of plants and animals that presently

             are flourishing are considered undesirable by many individuals. It is not believed

             possible to turn back the "ecological clock" and recreate the lake conditions that

             existed in 1900. However, through R&D, it may be possible to utilize this fertile

             lake for more desirable ends.

                  The adjective "dead" was first applied to Lake Erie following, the rapid demise

              Air & Water Nei-is, September 16, 1968, p. 5..
             2
                                "Lake Erie: Old Before Its Time", Buffalo Evening 11ews, December
              Russell, Roland,
              1967.
             3
              Brinkhurst, Ralph 0., "Change in the Benthos of LakesPrie and Ontario", Changes in
              the Biota of Lakes Erie and Ontario, Buffalo Museum of ScienceP 1969 (in press).

              of the lake's commercial fishing Industry. These losses were primarily due to the

              disappearance of such fish as the cisco (Coregonus a:Etedii), whitefish (Coreganus-

              clupeaformis) and walleye or yellow pike (Stizostedion vitreum). These species were

              replaced by the carp (Lyprinus carpio) and sheepshead Q-2lodinotus grunniens).

              Presently, the latter two fish have little commercial value. r1owever, if the tech-

              niques for extracting fish protein concentrate (fish flour) fror."oily" fish, such

              as the carp and sheephead, were developed, Lake Erie could provide a vast supply of
                           2
              sucL-1 protein. Dr. Robert Sweeney notes that a Canadian firm exploits trash fish
              ftom Lake Ontario for fish meal used as pet food.  3

                   The development and introduction of marketable fish that are more tolerant of

              the present environmental conditions could revitalize the lake's commercial fishing
              industry.  The success of the coho salmon (Oncorhyn hus @-isutch) in Lake Michigan

              exemplifies what can be accomplished through such efforts. Commercial.and sport

              fisheries both would be improved if more effective techniques were developed to

              remove and/or degradate organic industrial wastes prior to their entering Lake Erie.
                                                                                       4
              These chemicals, such as phenols, cause the fish to have a poor taste.       if such

              desirable flavors were absent, a considerable smoked fish industry could be initiated.

                   Another aspect of the pollution problem that is in need of '.R.&D concerns recre-

              ation. With higher wages and shorter work weeks, there has been a 300% increase in

              I
               Baldwin, Norman S., and Saalfeld, Robert W., Commercial Fish Production in the
               Great Lakes 1867-1960, Great Lakes Fishery Commission Technical Report Yo.3, Ann
               Arbor, Michigan, 1962.
              2
               Marchl B.E., et, al.,  "Composition and Nutritive Value of '@eals From Alewife,
               Sheepshead, Maria, and Tullibee", Journal of the Fisheries Pesearch Board of
               Canada, Vol. 21, No. 6, 1967.
              3
               By personal communication.
              4
               McKee, Jack E., and Wolf, Harold W., Water Ouality Criteria, California State
               Water Quality Control Board Publication ITo. 3-A, Sacramento, California, 1963.

                                                                                            111-19

              the number of pleasure craft owners in the Lake Erie Basin during the past twenty
              years.1 An even larger increase has been observed in the numbers of individuals

              who partake in fishing and swimming. However, the number of days that Lake Erie's

              beaches and boat launching sites are open each year is decreasing. Such closings
              primarily have been caused by the recent proliferation of "lake moss" or Cladophora. 2

              This shoreline algae chokes the beaches and clogs engines. The putrid.stench from

              rotting masses along the shore also reduced the value of lakeside land. Increasing
              Cladophora problems are believed to exist on Lakes Michigan and Ontario.3 Yet, littlf

              has been expended to develop effective control measures for this plant or to under-

              stand its life history. (Additional observation with respect to the effect of pollu-

              tion on recreation is included in the section, Recreation).

                  Additional studies also are needed on the control of other groups of Lake Erie

              algae, particularly the blue-green species. This latter group imparts an unpleasant
              odor and taste to the water.4  Such research is vital since an ever-increasing number

              of people are depending on Lake Erie for their domestic water supply. However, the

              channeling of research funds to single cures should be avoided. ror example, the

              lake's algae problem has been attributed to an increase in pheephates, an inorganic

              substance that is essential to the development of most plants. It has been reasoned

              by some that if the control of phosphates entering the lake can be achieved, the

              I
               Boating 1967, National Association of Engine and Boat Manufacturers, Yew York, 1968.
              2
               Water-Oriented Outdoor Recreation in the Lake Erie Basin, U.S. Bureau of Outdoor
               Recreation, Ann Arbor, Michigan, 1966.
              3
               Water-Oriented Outdoor Recreation In the Lake Ontario Basin, U.S. Bureau of Outdoor
               Recreation, Ann Arbor, Michigan, 1967.
              4
               Palmer, C. Mervin, Algae in Water Sualies, U.S. Department of Health, Education,
               and Welfare, Washington, D. C., 1962.

                                                                                               111-20

              control of algae growth can similarly be achieved.! Yet, it has been demonstrated
              that phosphates may not be the sole controlling factor.   2  Therefore, in the search

              for an answer to the problem, other solutions must not be ignored.

                    It needs to be emphasized that Lake Erie should not be abandoned as a lost re-

              source. Through research and cooperation, we should be able to slow the eutrophi-

              cation or "aging" of the lake and make more effective use of this resource.

                    Hennigan states the program required for effective water quality management in
              the Great Lakes includes the following elements:  3

                    *  Basin-wide planning and regulatory coordination to insure a.comprehensive,
                       unified approach to regional water use and needs.

                    *  Planning, construction, and operation of necessary drainage and sewage col-
                       lection and treatment facilities and industrial waste treatment facilities..

                    *  Effective control measures to eliminate or reduce input of beat, oil, sed-
                       iment, pesticides, nutrients, dissolved salts, boat discharges, and solid
                       waste.

                    *  Fixed responsibility for clean-up and disposal of weeds, algae, oil, sludge
                       deposits, dead fish, and other deleterious matter.

                    *  Research programs to advance knowledge of pollutants, to improve collection
                       and treatment methods, to better understand water movement, to improve the
                       fishery, to develop organization and financial arrangements to more effec-
                       tively meet goals.

                    *  Graduate, undergraduate, technician,  and in-service training to provide the
                       needed manpower.

                    *  A comprehensive, continuously operating surveillance program to show long-
                       term trends, to pin-point problems, to evaluate activity, to help plan fu-
                       ture action.

                    o  Impoundments and stream flow regulation on tributary streams to eliminate
                       nuisance conditions, to equalize waste-water dilution, and to maintain ac-
                       ceptable environmental conditions.

               Tarzwell, Clarence IT.,, Conference in the 'Natter of Pollution of Lave Erie and Its
               Tributaries, Cleveland, Vhio; U.S. Dept. of HEW, Washington, D. C., 1966.
              2
               Mackenthun ' Kenneth Vt. and Ingtam, William M., Algal Grot-ith Aqueous Factors Other
               Than Nitrogen and Phosphorus, Federal Water Pollution Control Administration, Wash-
               ington, D.C., 1966.
              3
               Hennigan, op. cit..

                                                                                            111-21

                   a A public education program to develop support for effective action and
                      to counter misinformation about the water resource and water quality
                      management.

                   Hennigan also lists some of the significant problems and conflicts which must
              be overcome to accomplish the water quality management objectives described above.1

                   *  Cost of needed facilities coupled with competition for tax monies, and con-
                      straints on local government financing.

                   *  Failure to delineate Federal, state, and local program responsibility and
                      to provide a needed focus.

                   *  Varying state programs, both in.concept and execution.

                   *  Multiplicity of local governments in metropol itan areas; lack of area-
                      wide approaches to water, sewer, and drainage needs; combined sewer sys-
                      tems and old mills and subsequent problems; and poor operation of exist-
                      ing municipal and industrial treatment facilities.

                   *  Reluctance of industry to take action, the buying of time by obfuscation,
                      and playing off levels of government and experts, one against the other.

                   e  The lack of knowledge and need for research, particularly on ecology, nu-
                      trients, pesticide, heat, storm water control, advanced waste treatment,
                      and institutional Arrangements.

                   *  Professional disagreement on effluent and receiving water standards,
                      treatment and removals required, and underlying philosophy of water quality
                      management.

                   For the purpose of this study, the problems in water quality and control which

              are of greatest concern to Lake Erie and Lake Superior have been arranged into the

              following categories: (1) measurements of pollution and its effects, (2) eutrophi-

              cation and algal growth, (3) pollution control and waste management, and (4) insti-

              tutional implications. A brief review of the measures which have been recommended

              for water quality control by the major concerned agencies in the Great Lakes Region

              and the National Planning Association are included.

                   Measurement of pollution and effects.--The measurement of pollution and its

              1
               Ibid..

                                                                                            111-22

              effects is a major component of the management and control effort to conquer the

              water pollution problem, particularly in Lake Erie. Three general categories of

              information are required in order to evaluate the effects of waste discharges in
              the lakes or any of their tributaries or connecting ch annels:l

                   *  The nature of the waste material itself.

                   *  The movement of the waste material within, or along, the coastal zone
                      waters.

                   *  The way in which the waste material interacts chemically and biologically
                      with the lake environment.

                   Information with respect to the eight general categories of water pollution

              substances is collected largely on the basis of three classifications: blo-degradable

              materials; toxic substances (including other conditions such as temperature)*, and

              suspended solids. Bio-degradable materials consist of complex organic compounds

              which break down through biological action in the aquatic environment into their

              simpler component nutrient materials. While these materialsmay not be directly

              toxic to aquatic life, they can indirectly damage the aquatic environment. For

              example, excess algal growth and consequent oxygen deficiency in the lake wbters

              can cause damages of this kind. Toxic materials may poison aquatic life directly,

              or cause abnormalities in eggs or larvae. Suspended solids may harm the aquatic

              environment by either being deposited on the bottom or while in suspension interfer-

              ring with light penetration.

                   The second important kind of information needed to evaluate pollutinn in the

              coastal zone waters involves a measurement of the movement of waste materials after

              being discharged into the water. Variations in volume, concentration, or composi-

              tion of waste discharges will have different degrees of impact depending upon the

               Wastler, T.A., "Instrumentation Requirements for Pollution in Estuaries", a paper
               presented to.the Marine Technology Society, Washington, D.C., February 29, 1968
               (unpublished).

                                                                                               111-23

               movement of the water into which it is discharged. For example, even small vari-

               ations of discharge in an estuary or nearshore area with little current movement

               will have significant impact due to concentration build-up. These areas will requirc

               more careful monitoring and control, or even artificial stimulation of water flows.

               Discharges into tributaries  or connecting channels are more rapidly carried away

               and dispersed or diluted. Thus, levels of river flows are an important factor in

               maintaining dispersion or diluting these waste materials. Other variables or modi-

               fying factors which affect the movement of water and waste dispersion are strati-

               fication (common in estuaries), tides, river discharges, local currents, and bottom

               and shoreline topography.

                    Information to determine the interaction of components of waste discharges with

               the biological and chemical peculiarities of the coastal water environment is the

               third important problem of evaluating water pollution in the coastal zone. Infor-

               matinn concerning the chemistry and biology of fresh water rivers and lakes is much

               more exacting than from the ocean. For example, total dissolved solids content in

               Great Lakes studies are measured in parts per million, as opposed to measurements

               of three orders of magnitude higher in the ocean environment.

                    Monitoring systems in Lake Erie and Lake Suoerior should be located to cover

               all possible variable conditionaz (1) near the sources of out-fall and adjusted

               to the particular waste discharge; (2) frequent enough to permit recognition of

               concentration build-ups due to increase in discharge rate or occurrences of de-

               creased flows or stagnation in water circulation; and _(3) at varying depths and

               locations according to stream flow of lake circulation patterns to determine areas

               of pollution concentratioR and areas relatively free from severe pollution condi-

               tions. Overall measurements basic to evaluting the effects of water pollution,

               particularly in nearshore waters,include: temperature, salinity, dissolved oxygen,

                                                                                              111-24

              turbidity, current speed, and current direction. Depending on the nature of the

              wastes being discharged, other special measurements may be necessary, such as for

              bio-degradable materials -- including BOD (Biochemical Oxygen Demand) and total

              organic carbon -- as well as for high inputs of inorganic nutrients (such as nitrate   s

              and phosphates) including chlorophyll concentration.
                                                  Great Lakes is @4dely expressed throughout the
                   The need for a more effective environmental monitoring system throughout the/

              scientific and engineering community. In terms relative to the need for environmentE.

              data in Lake Superior to monitor the local and lakewide impact of "waste discharges".

              such as the taconite tailings at Taconite Harbor or the thermal effluent from the

              power plant at Marquette on still essentially pristine waters, and to the measuring

              of pollution concentrations  in Lake Erie to guide abatement programs -- the pollu-

              tion monitoring program of the FTA7PCA should be broadened and strengthened to include

              the above parameters. Additionally, it would be of benefit for the 17,-.TCA to further

              cooperate with academic and other research institutions, agencies, and industry in

              providing technical assistance and the use of lake monitoring stations in the con-

              duct of related research activities.

                   The design and use of remote sampling equipment and automatic instrumentation

              of a high degree of accuracy for obtaining the information (necessary to evaluate

              the effects of pollution) would be a significant help to developing a monitoring
              system for Lake Erie.1 The design of such equipment for the coastal zone of Lake

              Erie and Lake Superior would have certain unique requirements in relation to similar

              gear designed for the ocean environment. Advantageous design features to be incor-

              porated in automatic instrumentation in the coastal zone would include: provision

              for easy and frequent servicing; ready accessibility to shore power supplies-, suit-

              1
               From discussion of a meeting of the Federal Interagency Committee on Great Lakes
               Research, Detroit, Michigan, July 23, 1968.

                                                                                               111-25

              ability for use in shallow waters, and exposure to highly variable and rapidly

              changing conditions of winds, waves, and currents and close and frequent passage of

              large and small vessels; and capability of measuring large and rapid variations in

              parameters, (but not to the extent required in ocean measurements). The variety of

              nearshore "micro-environments" is much greater than that encountered in the ocean

              environment. Another characteristic of pollution measurement to be considered in

              automatic instrumentation design is that some parameters are not now subject to

              measurement with automatic sensing techniques. Therefore, devices are needed to

              collect and store stamples for later measurement or analysis, rather than making

              in situ measurement or analysis. Wastler describes four specific types of instru-

              mentation that would be useful for monitoring pollution in nearshore or estuarine
              environments: 1 (1) current-measuring devices, (2) automatic warning devices, (3)

              biological sampling or sensing devices, and (4) devices to collect and store water

              samples.

                    The main problems Associated with measurement of pollution and its effects in

              the coastal zone of Lakes Erie and Superior may be summarized as follows:

                    *  Identification and measurements of different kinds of water, air, and land
                       pollutants in the coastal zone as a function of distance from the shoreline.
                       (Land pollutants include solid waste disposal, derelict buildings, litter,
                       and weeds).

                    *  Shifts in po llutant concentrations, including chemical interaction of
                       pollutants; seasonal variations or climatic effects; and detection of other
                       shifts in concentration and causal origins.

                    *  Effects of pollution on oxygen deficiencies of water.

                    ,@ Effects of pollution on ecology of aquatic plant and animal life.

                    e  Effects of water and air pollution on the ecology of terrestrial plant and
                       wildlife.

               Wastler, op. cit..

                                                                                             111-26

                   *  Effect of water pollution on humans, including denial or diminished use
                      for water-oriented recreation; harmful biological effects on humans; de-
                      teriorating effects of pollution on taste of drinking water or fishery
                      products; desirable or undesirable effects of thermal pollution; harmful
                      aesthetic effects; and other costs of water pollution (i.e., increased
                      expenditures for boat maintenance, etc.).

                   *  Effect of air pollution on human uses in the coastal zone, including harm-
                      ful biological effeets; negative aesthetic effects (esp., residential,
                      tourist, and recreational effects); and other costs of air pollution (in-
                      creased expenditures for laundry, clothing, paint, etc.).

                   * Effects of land pollution on human use of coastal zone, including residen-
                      tial, recreational, or tourist uses(especially negative aesthetic effects).

                   EutrORhication A_nd aleal arowth.-As mentioned above, municipal and agricul-

              tural drainage, however well treated, unavoidably adds large quantities of nutrient

              materials to the water, producing growths of algae often of nuisance proportions.

              In terms of the process of eutrophication, Lake Superior is basically pristine, Lake

              Michigan is in the early stages, Lake Erie is in an advanced stage, and Lake Huron

              needs to be evaluated. The greatest research need-is for information about the key

              mechanisms in the eutrophication process. For example, although nitrogen and phos-

              phorus are known to be major contributors to the enrichment process, little is known

              of the role of oroanic micro-nutrients,    including some not yet identified. Most

              studies to date have been largely descriptive, and have not delved adequately into

              the key areas af cell biochemistry, nutrition, and growth of algae. Additionally,

              research is needed for exploring ways to beneficially utilize the products of eu-

              trophication, such as a fertilizer enrichment to achieve greater growth of fishery

              stocks, which may involve either developing strains of algae that fish will eat or

              developing a species of fish or zooplankton that will consume algae now present in

              the lakes. R&D is also needed to control algae pollution problems, such as that

              resulting from excess algae fouling a beach or clogging filters of a municipal water
       is     plant.

                                                                                            111-27

                   The following represents the major research categories under investigation

              and needed in the process of eutrophication and the interrelationship of eutrophi-

              cation process with other resources and activities in Lakes Erie and Superior!

                   e  Factors influencing eutrophication; depth of water nearshore (bottom slope);
                      algal growth rates (see below); climatic changes; nutrients (kinds and
                      levels); organic micro-nutrients; and cell biochemistry.

                   e  Factors influencing algal growth rates, including identification and meas-
                      urement of variables which determine growth rates; and interaction of var-
                      iables and measuring effects of algal growth rates.

                   e  Effects of algal growth on: seasonal oxygen deficiencies in water; lake
                      ecologies; fisheries; recreational uses; and water quality for domestic.
                      and industrial uses.

                   e  Control technologies (present or potential), including physical removal of
                      algae and its disposal as waste; commercial utilization of harvested algae;
                      use of chemical herbicides to control algae; reduction of pollutant nutri-
                      ents.(see below); land fills to increase depth of water nearshore; removal
                      of bottom sediments containing decomposed algae and nutrients; hydraulic
                      flushing; and biological control.

                                                                                             111-28

                  Pollution control and waste management by sources.--As mentioned earlier, the

             core of the water pollution problem lies in the consequences of using river systems

             to carry off raw or insufficiently treated sewage (resulting from inadequate second-

             ary treatment facilities) and using the lakes as a receptacle. The problem is being

             compounded by the increase of waste discharges to overloaded proportions due to the

             increase in population and urban and industrial growth, and with the latter, the

             introduction of new toxic agents and waste materials that are even more lethal to

             the aquatic ecology.

                  The problem of developing control standards and methods is made difficult by

             the variety of pollution agents. These problems fall-into three@broad areas. First,

             wastes are mixtures of the general categories of pollutants mentioned above. This

             condition complicates the design and operation of treatment and control systems.

             Municipal wastes usually contain oxygen-comsuming wastes, synthetic organic chemi-

             cals, and sediments. The same is true of many industrial wastes which may contain

             substantial amounts of heat from processes other than cooling. Land drainage

             usually contains substantial organic matter in addition to sediments, as well as

             lesser amounts of radioactive substances and air pollutants washed from the sky,

             vegetation, buildings, and streets during rainfall.

                  Secondly, the matter of adequate flows of water in tributaries and connecting

             channels of the lakes is another large factor in pollution control. Although it is

             important that secondary (and even tertiary) treatment of wastes be accomplished

             ILea,Sperry, "Fresh Water in a Canadian American Context," a  .draft study prepared
             for the Canadian-American Committee of the National Planning Association,
             September 1965.

                                                                                              111-29

              before they are discharged into water bodies, stream flows must be mentioned.   1  if

              emission loads are to be increased, it would be desirable (provided this is eco'-'!
              nomically feasible) to increase stream flows for dilution purposes-@ In part, this

              is because so much insufficiently treated waste is still being discharged into

              streams and, in part, because existing treatment technology cannot yet handle

              economically some of the newer chemical pollutants. Thus, there is a crucial link

              between,quality and quantity of fresh water, especially in industrial areas.

                   Thirdly, the problem of waste interaction further complicates the pollution

              situation. Once discharged into the diluting water body, some of the new polluting-

              agents may interact with each other or with normal aquatic life to trigger the

                                                                 3
              generation of yet more pollution, as in Lake Erie.

               Additionally, a scale model of Lake Superior is being used by the University of
               Wisconsin to study the patterns of the lake's currents in an effort to solve some
               of the problems of water pollution and conservation. Parks.and Recreation,
               July 1968, p. 59.
              2Several schemes have been proposed, and in some cases implemented, for increasing
               stream flows and providing increased dmounts of fresh water flows to shoreline
               areas to dilute pollution concentration. These include the deepening and widening
               of connecting channels between lakes, described further in the later section of
               Water Resources Management (Sperry Lea) the pumping of fresh water from offshore
               tonearshore areas and beaches for release (Harold Goodwin), and the pumping of
               fresh lake water to tributary rivers for release upstream from urban concentra-
               tions and/or the construction of holding reservoirs to release water during peak
               p
                 "lution loading periods or natural low flow levels (Miller Spangler).
                o4.
              3Here the dissolved oxygen content of the water is lowered by the influx of
               untreated organic wastes. Meanwhile, plant nutrients, some derived from synthetic
               organic oxotics--especially detergents--stimulate the runaway growth of algae.
               Besides being a nuisance to beaches and to water treatment equipment, the algae
               eventually sinks to rot at the lake bottom, becoming itself an oxygen demanding
               waste. As the dissolved oxygen becomes depleted at the lower levels, dying fish
               degrade the recreational and commercial value of the lake, and create still further
               demands for oxygen. (Lea, o ,Sit.).

                                                                                               111-30

                   Pesticide buildups are threatening to contaminate the coho salmon fishery in

           Lakes Michigan and Superior beyond levels considered safe for human consumption.

               Such contamination also poses a threat to the growing commercial and sport fishing

               industry dependent on the coho salmon. Reacting to the growing pressure for

               stricter enforcement, the Food and Drug Administration in @Iarch 1969 seized 28,000

               pounds of frozen coho salmon in warehouses in 111ilwaukee,.-Superior and Duluth that
               were infected by pesticide residue. li2 The FDA had found composite readings of DDT

               as high as 19.5 parts per million (ppm.) in the salmon and lesser amounts of
               deildren.3 This is nearly three times the level found in 1967 run fish. Levels in

               the fat of lake run fish, where the pesticide tends to concentrate, run as high as
               50-60 ppm., according to Bureau of Commercial Fisheries studies.  4

                  The complaint filed by the FDA in the Federal Court in Milwaukee stated these

               levels made the fish unsafe for consumption. While 7 ppm. (5 ppm. in fish) is

               considered an admissible level for consumption, the danger of DDT and other

               chlorinated hydro-carbons to humans and wildlife has not yet been clearly defined.

                  Pluch of the actions initiated againct pesticide contamination was initiated
                                                                                                   5
               by a suit made by a private conservation group called Environmental Defense Fund.

               This organization has secured the assistance of scientific witnesses, including

               fishery and wildlife biologists, botanists, organic chemists, a pharmacoloaist, and

               an entomologist in t- ing to prevent local and state agencies from using DDT or
                                  ry

               lkFThe Environment: Beyond the Bug," Time, April 18, 1969, pp. 24-25.
               21
               'Wisconsin Wildlife Officials Alarmed,@' The ',4ashington Post, April 19, 1969,
               Washington, D. C., P. F-13,
               3Ibid..

               4,
               'The Environment: Beyond the Bug," op. ci
               51q DDT: The Critics Attempt to Ban Its Use in Wisconsin", Science              b.7,
               1969, pp. 548-549.                                                 Vol. 163, Fe

                                                                                            111-31

              dieldrin by filing precedent-setting legal suits in state and Federal courts in

              Michigan and Wisconsin. The EDF has also taken advantage of the Wisconsin Depart-

              ment of Natural Resources administrative hearing procedure. The Department is now

              in the process of conducting bearings to determine if DDT should be banned as a

              stream pollutant. In the face of "popular reaction" to pollution problems appar-

              ently emanating from the use of DDT, dieldrin, and other pesticides expressed

              through the petition of court orders to ban the use of these chemical agents, it was
              stated:1

                   ... in general, judges have held that it is within the discretionary authority
                   of state and local agencies to decide whether or not to use pesticides, and
                   that for the courts to interfere would be improper.

                   However, in the case of Wisconsin, the Citizens Conservation Group (Environ-

              mental Defense Fund) has not had to test far-out legal concepts since a 1943

              Wisconsin stature permits citizens to petition for a ruling on how, or whether,

              laws or regulations (in this instance, the water quality standards) which it

              administers apply to a particular question--in this event, the charge that DDT is

              a pollutant. The Department of Natural Resources' willingness to rule on the

              anti-DDT petition, presented by EDF on behalf of two Wisconsin conservation groups,

              is believed in itself to be significant; for had the Department wished, it no doubt
              could have found reason to reject the petition.2

                   Testimony at hearings at Madison, Wisconsin, on the petition to ban the use
              of DDT also indicated diverse opinions.3 One testimony, for instance, indicated

              DDT poses on threat to human healtb and that the Lake Michigan coho salmon seized

              by the FDA because of high DDT levels would have been safe to eat.

              1Ibid..

              2
               Ibid..

               Air,and Water News, May 5, 1969, p.6

                                                                                            111-32

               DDT residue in the fish ranged from 13-19 ppm.;and the FDA established a guideline

               of 5ppm. for fish after the seizure, which would tend to indicate a lack of clear-

               cut data upon which to set such standards. For instance, a study was reported of

               workers in a DDT plant who were exposed for as long as 19 years to doses estimated

               at 14-42 mg./day (as conpared to the average dose of .028 mg./day per man). They

               showed no ill effects because the human body eventually builds up a balance point

               at which it excretes DDT. On the other hand, another study was quoted which

               showed the liver tissue of persons who died of liver diseases contained 2 to 2.5

               times as much DDT as the tissues of persons who died of natural causes.

                   Indeed, the good and bad effects of pesticide use is a controversial issue.

               In a recent public statement, one authority condemned the use of DDT, while another

               presented views in support of its use. In condemning the use of DDT, it is said

               that the root of this problem lies witb the DDT molecule itself, for it combines
               four properties that are responsible for its behavior in the environment:1

                  (1)  Toxicity to almost all animal life rather than simply the insect pest.

                  (2)  Persistence, so that it remains in its original toxic form for at least
                       a decade and perhaps much longer.

                  (3)  Mobility, so that it doesn't remain where applied, but is carried about
                       the earth by currents of water and air.

                  (14) Solubility properties that cause it to be accumulated by living organ-
                       isms, instead of getting 'lost' in the oceans, in soils or in other
                       inorganic parts of the environment.

               Wurster, Charles F., "It's Polluting All the World", part of a dual article on
               "DDT: Boon to Man--or Ban to 6ur Envirorment", The Washington Post, May 4, 1969,
               Washington, D. C., pp. B-1, B-3.

                   On the other hand, those who endorse the use of DDT claim:               111-33
                   First, DDT is safe, and has been studied more than any other pesticide for its
                   effects on human beings. Without pesticides, there wouldn't be enough food to
                   go around. Next, the campaign against DDT is emotional and unscientific, and
                   I object to this. Most important of all, DDT is needed by the millions of
                   'Third World' people because It is a cheap, safe residual pesticide.
                   In the face of such contrasting views, the buildup of pesticides in coho salmon
               caught in Lake Michigan and its tributaries has led the Michigan Agriculture
                                                                        2
               Commissionto temporarily ban the sale of DDT in Michigan.
                   The Michigan Agriculture Department in early April 1969 voted to cancel

               registration of the pesticide, DDT, effective in 30 days. The action would totally

               ban sale, manufacture, or use of the pesticide in the state, although use of them
               already Is nearly phased out.3

                   However, the Michigan Attorney General stated that the DDT ban cannot go into

               effect until mid-June after the spring planting season because state law requires

               a 30-60 day grace period to allow distributors to get rid of there supplies and

               manufactureres to adjust their marketing programs. There are also provisions for
               anyone affected by the ban to request a hearing.4

                   In the case of Lake Michigan, DDT and its by-products have been indicted by

               experts of Michigan State University's Fisheries and Wildlife Department as threat-

               ening the lake's burgeoning new industries of sport and commercial fishing for the

               IJukes, Thomas H., "Its Use Saves Untold Lives", part of a dual article on "DDT:
               Boon to Man - or Ban to Our Environment", The Washington Post, May 4, 1969,
               Washington, D. C., pp. B-1, B-3.
               21l Michigan Outlaws DDT," The Washington Post, April 17, 1969, p. A-4.
               3.
               Air & Water News, April 21, 1969, p. 2.
               4
               Ibid..

                                                                                           111-34

                  coho salmon.   DDT was blamed for results of recently completed hatchery

               studies which showed that about 11% of the first year's eggs that were hatched

               from Lake Michigan experienced fatal seizures; and in some batches of fresh eggs,

               up to 73% of the fish died.

                  Others have reported harmful effects to wildlife via subtle metabolic changes

               which only recently have been detected. Testifying before a Wisconsin Department

               of Natural Resources hearing considering the banning of DDT, a biologist for the

               U.S. Department of Interior's fish-pesticide laboratory said that offspring of

               trout which had been fed small doses of DDT showed higher mortality rates and more
               stress from environmental conditions.2

                  In addition to the temporary ban of DDT, The Governor of Michigan also announced
               the following steps:3

                  e  Arranging with Wisconsin Governor Knowles to set up a five-state governors'
                     conference to.plan action;

                  e  Ordering of an immediate pesticide monitoring program by the Water
                     Resources Coamission;

                  e  Establishment of a Bureau of Water Management with the Department of
                     Natural Resources; and

                  9  Establishment of a cabinet-level Council for Environment Quality.

               1Air & Water News, March 17, 1969, p. 3.
               2
               Ibid..
               3
               Air & Water Yews, April 21, 1969, p. 2.

                                                                                                111-35

                    in April, the five states surrounding Lake Michigan announced formation of

              four  committees to prepare data for the FDA:

                    *  A committee of water pollution control experts to set up a monitoring
                       system on the lake;

                    *  A panel of public health experts to review information relevant to the
                       health hazards of pesticides;

                    *  A committee of agricultural experts to evaluate the impact on agriculture
                       of pesticides;

                    *  A committee of state natural resource and recreation experts to evaluate
                       ecological effects of existing pesticide levels and their continued use, and
                       to determine the economics of fishing income loss.

                    The Governors also petitioned the Federal Government not to permit the FDA to

              set tolerance levels of DDT until the states have a chance to submit their own data.

                    The Secretary of HEW has appointed a special Commission on Pesticides and

              Their Relationship to Environmental Health to look into the effects of pesticides

              on the environment and will place special emphasis on DDT. The Commission is to

              make its report with specific recommendations in six months. The FDA has in the

              meantime placed a 5 ppm. interim limit on the amount of DDT in fish shipped through

             ''interstate commerce, but which could be changed after the commission makes its

              report.

                    According to Dr. Robert Sweeney, one of the problems 6f pesticide buildups in

              fish and wildlife Is that the nationwide monitoring system established under the

             FWPCA in cooperation with state agencies is primarily aimed at water sampling for

             chlorinated hydro-carbons on a river basin basis, and does not adequately include
             continuous monitoring of organisms living in the water.   3

             1Air and Water News, Ap ril 28, 1969, D. 2
             2.1bicL.
             3By personal communication

                                                                                               ITI-36

              Concentrations of pesticides may vary to a greater or lesser extent in organisms,

              such as algae, larva, or fish, within a given concentration in a water body. Ade-

              quate sampling has not been done to test the pesticide concentration in Lake Erie

              or Lake Superior. A pesticide sampling program on Lake Erie in 1964 and 1965 failed

              when the samples were contaminated accidentally in transshipment,toi-the laboratory.

              Monitoring stations under the FWPCA nationwide system have been set up at sites

              on the Detroit and St. Clair Rivers, Milwaukee on Lake Michigan, Duluth on Lake

              Superior,         Maumee River at Toledo, and     Buffalo on Lake Erie. Considera-

              tion should be given to expanding the scope of the monitoring system and strength-

              ening the cooperation between the FWPCA
                                                            the Department of HEW and the Depart-

              ment of Agriculture in determining consumption tolerances and management practices

              in the use of pesticides to enable the beneficial use of pesticides in agricultural

              production and at the same time not be harmful to public health as well as fish and

              wildlife. Cooperation in providing monitoring and other technical assistance by

              these Federal agencies to state and local jurisdictions should be strengthened.

                   It is also frequently argued that the burden of responsibility to demonstrate

              safe tolerance levels in the use of pesticides should fall on the industrial pro-

              ducers of the materials-as is the case in drug manufacture--or the agricultural

              agencies that regulate direct use. However, it should be pointed out that the

              extremely wide and complex range of indirect social and economic costs and benefits,

              and various kinds and degrees of ecological Impacts may be beyond the capability

              of much of the manufacturing industry or regulatory agencies to assess. In fact,

              to place this assessment responsibility completely on these organizations may effec-

              tively discourage the manufacture and use of DDT because of the high costs and risk

              involved. While not attempting to anticipate the outcome of the present scientific

              and legal controversy over the use of such pesticides in the Great Lakes Region, it

                                                                                          ITI-37

              is suggested that a broader institutional base is needed to support R & D into the
              continued use of pesticides; and in which cass the Marine Sciences Council should
              take initiative in identifying its stake in evaluating the impact of pesticide use

              in the coastal zone environment, especially marine species of animal and plant life.

                  Another important pollution control problem is that, for many cities, storm

              sewers are combined with sanitary sewers. The Water Quality Act of 1965 established

              a four-year program of R & D grants to demonstrate new or improved methods to

              eradicate the combined sewer problem. For this purpose, Congress voted an annual

              appropriation of $20 million for fiscal years 1966-69. The FWPCA reports the results

              of these studies will be available soon. Lake EKU_Aeygrt states that it will cost

              roughly $3 billion to separa te or to convert combined sewerage systems (Where

              feasible in redevelopment) to accommodate the 40 billion gallons.per year sewage
              that flows into the basin's waterways.1 About one half of this flow is the result

              of storm-surge overflows, primarily from Detroit, Cleveland, and Toledo.

                  An alternative to the separation of combined storm and sanitary sewer systems

              into dual or separate systems is to utilize various kinds of reservoirs to hold

              the overflow of sewerage during storms in order to then treat it at off-peak periods.

              The FWPCA is experimenting with developing a holding system with collapsible syn-
                                                  2
              thetic rubber bags at Sandusky, Ohio.  The FWPCA has also sponsored a study of the

              feasibility of constructing a holding k2nd on the edge of Lake Brie Just easterly

              1
              ja!Lp,@.Erie Rt-R2rt: A Plan for Water Pollution Control, Federal Water Pollution
              Control Administration, Great Lakes Region, Washington, D. C., August 1968, p. 57.
              2,'Underwater Storage of Storm Overflow", Environmental Science & Technology, Vol. 2,
              No. 9, September 1968, p. 668.

                                                                                                       111-38

                                                                                                 an
                 of Cleveland.    The Chicagoland Deep Tunnel Project proposes to develop/underground

                 sewerage storage reservoir 800 feet below the surface utilizing breakthroughs in
                 tunneling methods.  2  The proposal may also provide useful side benefits and cost

                 savings by providing a source of quarry materials.

                      Tt is estimated that the construction of a 900-acre shoreline holding reservoir

                 easterly of Cleveland capable of holding 30,000-acre feet (almost 10 billion gallons'

                 would cost approximately $72.6 million,     including $52.6 million for the reservoir,
                 $11.17 million for the collector system,    and $8.3 million for the pumping station.      3

                 The 10 billion gallon holding reservoir has the capacity to hold about one half of

                 the storm surge overflow running into Lake Erie and, in which case, serves as a

                 reasonable size to make crude cost comparisons for alternative reservoir facilities.

                 The proposed basin would treat flows from a number of large combined sewer overflows

                 from several polluted streams and effluent from a large secondary waste-water treat-

                 ment plant. Treatment would consist of bio-oxidation, sedimentation, stabilization,

                 and disinfection. A shoreline collection system would be included to convey flows

                 to the basin. Estimates of costs of the basin and collection system were prepared,
                 and it was concluded that the stabilization basin would provide a higher degree of          4
                                                                                            third the cost.
                 pollution abatement than would separation of sanitary and storm sewers at about one/

                  (Consulting Engineers), Feasibility_of a Stabilization Retention Basin in Lake Eric
                  at Cleveland, Ohio, Havens and Emerson, Cleveland, Ohio, May 1968.
                 2
                  Koelzer, Victor A.;,Bauer, William J.; and Dalton, Frank E., "The        Chicagoland Deep,'
                  Tunnel Project --- A Use of the Underground Storage Resource", A paper presented at
                  the 41st Annual Conference of the Water Pollution Control Federation, op. cit..
                 3
                  (Consulting Engineers), op. cit..
                 4
                  Simpson, George D., "Treatment of Combined Sewer Overflows and Surface Waters at
                  Cleveland Ohio", A paper presented at the 41st Annual Conference of the Water Pol-
                  lution Control Federation, op.. cit..

                                                                                               111-39

                    The cost-of  submerged rubber bags to hold 10 billion gallons with present
               technology would  run in approximately $200-300 million. 1  The advantage of using

               under around storage reservoirs, bags, or offshore diked ponds is that they can be

               located flexibly along the shoreline in a manner convenient to natural tributaries

               or drainage outflows or can be linked by a collector piping systems without com-

               peting for expensive land space. The important problem is, however, that insuf-

               ficient engineering data exists to determine the feasibility of these alternative

               approaches to, or combinations to go with, separation of storm and sanitary sewer

               systems. While the FWPCA is conducting R&D into these areas, this work should be

               strengthened in order to provide better data to include in decisions committing to

               long-scale public works, such as Cleveland's $100 million sewerage bond program,

               part of which is to be spent in separating sewers.

                    The City of Buffalo, in cooperation with the FAJPCA, has begun installation of

               an experimental air barrier across the Buffalo River as part of $737,000 attempt

               to find ways to prevent oil pollution of the river. Three plastic pipelines forming

               the barrier will be laid diagonally across the bottom of the river at the Michigan

               Avenue bridge. It is hoped that the stream of compressed air emitted will produce

               opposing currents that will impound the oil and permit it to be collected. Various

               methods will be tested for skimming the collected oil from the river's surface.

               Under a research contract with the city, Cornell Aeronautical Laboratory designed

               the air barrier system which will permit passage of ships -- a process impossible
               in a system. utilizing floating booms.2  The pipelines may also be strung around a

               1
                "Underwater Storage Storm Overflow", Environmental Science & Technology, op. cit..
                FWPCA in April 1969 reported the figure stated in the article of $15,000 for inflat-
                able 100,000 gallon capacity synthetic bags is more in the range of $20-30,000.
               2
                Air & Water News, May 12, 1969, pp. 1-2.

                                                                                                111-40

                waterfront perimeter to keep pollution out of a beach area.  I  Similar techniques

                                                                                           2
                have been used to fence out alewife in @cefttral                       igan ,  which
                                                                 programs in Lake Hich

                would suggest that the possible effects on fish life be considered in the use of

                air bubble pollution control systems.

                     F.&D efforts also include development of a monitoring device that can be in-

                stalled in sewers to detect and measure quantities of oil and a print method of
                identifying oil to determine its source by its base.  3

                     The Department of Interior and the Coast Guard have also reached agreement in
                most areas on which agency has control over oil spills and cleanup.   4  The agreement

                includes the following:

                     *  The basic fixing of responsibility in a cleanup should be by the President,
                        with authority delegated to various agencies.

                     *  Mere there is a discharge from a vessel or onshore or offshore installation,
                        either agency should be contacted immediately with that agency notifying the
       0                other. (Right now, the discharger must notify the Secretary of Interior,
                        but the department recognizes that the Coast Guard has more of*an interest
                        in vessels.)

                     *  The Department of Interior in consultation with the Department of Transporta-
                        tion should issue regulations on water quality and cleanup procedures, in-
                        cluding use of detergents and dispersants.

                     *  The Coast Guard should have the basic authority to issue regulations on
                        physical methods of cleanup in conforming with Interior cleanup regulations.
                                                                  t@                     -

                     *  The Coast Guard should issue regulations on prevention of oil discharge from
                        vessels.

                     These regulations should also spell out the responsibilities and authorities

                of states within whose jurisdictions such oil spill emergencies occur.

                1
                 Air & Water News., February 17, 1969, p. 7.
                2
                 Kupfer, George A.; and Gordon, William G., "An Evaluation of the Air Bubble as a
                 -Barrier to Alewives", Commercial Fisheries Review, September 1966, p. 9.
                3
                 Air & Water NeT,7s, op. cit..
                4
                 Air & Water News, March 17, 1969, p. 4.

                                                                                              111-41

                    The Atomic Energy Comaission claims no authority over regulating thermal dis-

               charge from nuclear power plants, either under its licensing regulations or under

               the executive order that calls on all governmental agencies to provide leadership
               in cutting water pollution.1  Current congr essional hearings into this problem have

               found that little real effort has been made to control waste heat discharge from

               nuclear plants, and there is almost no specific information available to determine

               the ecological effects of large-volume hot water discharge from a nuclear facility.

               With the increasing power requirements of the regions neighboring the shores of Lake

               Erie -- and to a lesser extent, Lake Superior -- and the increasing need for nuclear

               and convention thermal power plants, it is imperative that such regulatory authority

               be crystalized and data on environmental impact of heat effluents be developed. The

               use of thermal effluents along the Lake Erie and Lake Superior shorelines have both

               great opportunity for multiple use, such as with recreation areas (as is discussed

               later), as well as potential for rendering harmful environmental effects if dis-

               charges are not properly controlled. The Marine Sciences Council could take a first

               step by reviewing the permit application for Power plants submitted to the AEC and

               be the lead agency in coordinating inquiry into multipurpose and envirormental im-

               pact in the coastal zone. From this role, further recommendations could be formu-

               lated by the Marine Sciences Council to establish a continuing functional review

               procedure for this purpose and ways and means for accomplishing multipurpose ob-

               jectives in power site location and construction projects.

                    Review of pollution control measures.--Conside-.able study has been given to

               the study of water quality in the Great Lakes, and an extensive number of recommenda-

               tions have been formulated for remedial actions for the problem of pollution and

               I
                71 Atomic Power Plant in Hot Water", Business Week, June 29, 1968, pp. 69-72.

                                                                                                ITI-42

                accelerated aging of Lake Erie. Many of these measures have involved or have

                grown out of remedial actions that have already been initiated; others reflect

                new approaches which would meet pollution control needs or objectives if the ap-

                propriate technology were developed or innovations applied to increase efficiency

                or lower costs of existing approaches to the pollution problem.

                     Measures tihich have been recommended for preventative and restorative measures

                presented in four major reports on this subject have been complied in summary form

                and, together with additional measures and commentary by NPA, are included as
                Appendix A.1 The four major reports reviewed were:

                     *  Lake Erie Report: A Plan for Water Pollution Control, Federal Water Pollu-
                        tion Control Administration, Great Lakes Region, Washington, D.C.,August 19(

                     *  Great Lakes Restoration -- Review of Potentials and Recommendations for Im-
                        plementation, Pacific Northwest Laboratories, Battelle II-lemorial Institute,
                        Richmond, Washington, June 17, 1968.

                     9  Great Lakes Basin Comprehensive Framework Study, Plan of Study Document,
                        (Tentative Unpubli6hed Draft), Great Lakes Basin Commission, Ann Arbor,
                        Michigan, September 1968.

                     *  Early Action Program, Volume III, "Public Facilities and Services for
                        Economic Development, Lake Renewal and Management", Upper Great Lakes Re-
                        gional Commission, Washington, D.C., March 1968.

                     These studies were selected because of their concern with water pollution prob-

                lems in the Great lakes Region. They deal both with local a-kid lakewide pollution

                problems and with comprehensive and specific aspects of pollution control measures.

                In addition to the Lake Erie Report, the other reports provided information and

                measures that can be directly interpreted for application to Lake Erie and Lake

                Superior. Recommendations and accomplishments of state and local governments Sur-

                rounding the two lakes have been made which, while local in their concentration,

                1
                 Because of the space required to accommodate a large number (over 200) of meas-
                 sures compiled and a commentary, these were placed in the Appendix.

                                                                                             111-43

               may have impact on an extended part of the lake and, eansequently, should be con-

               sidered an integral part of developing regionwide water pollution control and

               abatement programs.

                    The measures for Tgater pollution cont@rol have been divided into two major

               categories: preventative and restorative. Preventative measures are employed to

               remove nutrients before discharge into the lake or tributary and are oriented toward

               removing the causes of pollutian and accelerated eutrophication. Restorative meas-

               ures are used to remove the nutrients or the products of eutrophy from the lake.

               Because the problem of pollution in its broadest sense involves the prevention of

               the cause of pollution and the restoration of resources that have been degradated

               from the pollution, both of these aspects should be included in an overall approach

               to the problem. Furthermore, it is the combined approach of pollution prevention

               and restoration that needs to be analyzed with respect to identifying the potential

               benefits which may be provided other uses of the coastal zone such as shoreline

               development, transportation, and urban development.

                    The recommendations of Appendix A are treated under the following headings:

                    I.  Preventative Measures

                        (1) Recommendations for nutrient-removal measures.

                        (2)  Recommendations for R&D for nutrient-removal measures.

                        (3)  Recommendations for non-nutrient pollution abatement measures.

                        (4)  Recommendations for R&D on non-nutrient pollution abatement measures.

                        (5)  Recommendations for R&D for both nutrient and not-nutrient pollution
                             abatement measures.

                        (6)  Recommendations on pollution abatement standards.

                        (7)  Recommendations for R&D in setting and controlling standards for
                             pollution abatement.

                                                                                                 111-44

                     II. Restorative Measures

                          (8) Recommendations   for restoration measures.

                          M- Recommendations    for R&D in the restoration of Lake Erie.

                    While the FAINCA Lake Erie  Report stated that the technology needed to solve

               the pollution problem in Lake Erie was largely in hand, virtually all of the preven-

               tative and restorative measures recommended would benefit in varying degrees from

               additional R&D. Further R&D in present pollution technologies, for instance, can

               lead to innovative developments which would increase the efficiency or lower the

               cost of pollution-control methods and which may consequently change (in some cases,

               possibly radically) the cost/effectiveness framework within which decisions are pres-

               ently being recommended and made committing to large-scale, expensive public works

               projects, such as the City of Cleveland's $60 million bond issue for separate sewer

               facilities. For instance, would other cities follow this same approach if new,

               cheaper (including the cost of R&D) technology were developed for constructing

               holding reservoirs for storm drainage surges in order to utilize the cost effi-

               ciency of a joint (or shared) sanitary and storm-sexier gathering system, and also

               thus enabling secondary treatment of urban runoff waters? Additionally, R&D to

               develop a wide variety of effective sewage treatment and waste disposal technologies

               will increase the potential of establishing compatibility of a greater number of

               land and water uses in the coastal zone which now have incompatible characteristics

               because of the effects of their by-products.

                    The R&D measures listed in the summary recommendations of Appendix A are those

               which were specifically identified in the reports deserving of emphasis for imple-

               menting measures for immediAte action. The main criteria by which the recommenda-

               tions are ranked are the urgency and contribution to the problem criteria referred

               to earlier. In this regard, the Great Lakes Restoration Report cites the following

                                                                                             111-45

                ranking of causes of accelerated aging of Lale Erie based upon the combination

                (individually or in combination) of the pollutants to the process of the eutro-

                phication:

                    High ImRact

                    Municipal Wastewater
                    Agricultural Runoff
                    Sediment Interchange

                    Medium Lmpact

                    Industrial Wastewater
                    Combined Storm Sewage
                    Urban Land Drainage
                    Dredging
                    Tributary In-Flow
                    Fisheries Considerations

                    Low Impact

                    Water Craft Waste
                    Oil and Discharges
                    Waterfowl
                    Sub-Surface Disposal
                    Atmospheric Quality Deterioration

                    In the selection of measures based upon priorities from among the extensive lis

                of (ranked) alternative measures, the source reports present some observations, con-

                clusions, and assumptions which may have influence over the application of criteria

                and strategies for action. As examples, some of these are discussed below and are

                by no means all-inclusive, either in terms of the many other implications that can

                be derived from further careful analysis of the source reports or from analysis

                of other related Great Lakes studies and on-going research operations.

                    Several assumptions about public awareness and commitment to solving the pol-

                lution problem have been made in the analysis of various restoration measures which

                should be considered as useful guides to the choice of strategy to pursue a res-
                toration program for Lake Erie. The assumptions are as follows:l

                Great Lakes Restoration Report  op. cit   p. 5.

                                                                                                111-46

                     a  Restoration is desirable because of the benefits which would accrue to
                        society.

                     e, Restoration is possible.-, for example, Lake Erie is not already "dead".

                     *  The public desire is to maintain a quality environment both for today and
                        as its legacy for the future.

                     *  The public is willing to bear the cost of maintaining a quality environ-
                        ment. For example, if the assumptions hold true that the public is willing
                        to bear the cost of maintaining the quality of environment through the res-
                        toration of Lake Erie, then the Federal Government has a clear mandate to
                        proceed ahead with the initiation of a restoration program for Lake Erie.
                        In this instanceP confidence to the commitment to a long-range program
                        buildup should be modified by the implication that "restoration measures
                        must be implemented so that the time of lake reovery will be short enough
                        to avoid substantial foregone benefits."l This statement was also made on
                        the assumption that recommendations for Preventative technology will be
                        implemented. This assumption then would suggest a short-run strategy for
                        the initiation of a Lake Erie Restoration Program in conjunction with pre-
                        ventative measures beings implemented pursuant to the Water Quality Act of
                        1965.
                                                        the
                     The Present capability of solving/Lake Erie pollution problen., is still sub-

                ject to, and in need of, improvement. The Lake Erie Report states, "The tools are
                available for doing the job. ,2  This includes the basic legislation, tecbnical com-
                petence, and the equipment. While it is true that the five stated in the La1-e Erie

                Basin have agreed to the requirements established by the pollution enforcements

                conferences and have submitted interstate water quality standards to the Secretar-j

                of the Interior (which set forth goals and ways to reach them), the cost-effectivenek

                relationships associated with carrying out these standards will change subject to

                the development of new technologies in pollution abatement devices, waste reclama-

                tion practices, level and availability of trained technicians to operate water

                I
                 Ibid., p. 45.
                2
                 Lake Erie Report, op. cit., p. 67.
                3
                 While Indiana is included within the geographical boundary of the Lake Erie Basin,
                 it does not face directly on Lake Erie; and for this reason, it is not discussed
                 in this study as a "coastal zone" state.

                                                                                              111-47

                quality control systems, and scientists to develop better techniques. Obviously,

                the National Sea Grant Program will make an important contribution to the training

                of requisite technicians and scientists as well as to support certain applied re-

                search in enlarging the benefits of pollution control through restoration and other

                measures. The costs at which present pollution standards may be achieved are sub--

                ject to possible reduction by the application of R&D. Furthermore, development of

                different and more efficient systems may require flexibility in commitment to

                present pollution abatement systems or anticipated restoration methods in order to

                implement the former. The prospects of technological advance in such systems would

                tend to suggest a hedge strategy in committing to programs based upon existing

                equipment and treatment systems.

                     The cost of sewerage and treatment facilities for the next five years suffi-

                cient to meet the requirements for municipal and industrial wastes is estimated

                to be approximately $4.5 billion, as shown in Table 1. The $4.5 billion price

                                                                       to T
                tag attached to a program to prevent further pollution    J'alre Erie and restore

                the lake to established quality standards is, in large part, based upon application

                of existing technologies. For example, activated sludge techniques are primarily

                used in municipal wastewater treatment plants. Table 2 shows data compiled on vari

                ous nutrient-removal treatment methods. The figures reflect a variety of ways to

                remove nutrients, some of which are more effective than the activated sludge

                method. However, the more effective methods are too expensive at this time to im-

                plement on a large scale. An important aspect of decisions committing to a given

                treatment process and the cost and effectiveness relationships associated with that

                decision is the inclusion of technological forecasting. Pivotal IR&D may be applied

                for instance, to a technique to better determine the probability of a particular

                method to become available in the future. Such forecasting will influence the exte

                                                                                       111-48

                                                       TABLE 1

                          ESTIMATED TOTAL FIVE-YEAR COST FOP. PrItVENTION AND RESTORATION
                                          PROGRAM FOR LAKE ERIE (1969-1973)
                                              (In Millions of Dollars)

                          Municipalities
                            Treatment                                       $    400
                            Sewer Construction                                   700
                          Industry                                               285
                          Lake-wide Sewer Separation                           3,000
                          Lake Brie Restorationi                                 150

                                         Total Program                      $  4,535

                          Source:.Lake Erie Report, p. 9.
                                   Great Lakes Restoration Report,, p. 50.

                  To provide a crude guideline for the order of magnitude of costs of a potentially
                  feasible high-priority restoration method, the Great Lakes Restoratinn ReRort
                  (pp. 45-51) provides an example of artificial re-circulation as a method for
                   destratifying Lake Erie in order to reduce availability of nutrients from bot-
                  tom sediments. It has been estimated that up to 40 million acre feet of bottom
                  waters of the central LaIre Erie Basin is subject to severe oxygen depletion dur-
                  ing late summer stratification conditions. Artificial destratification of Lake
                  Erie during these summer months (i.e., about 100 days) could be accomplished
                  with the development and operation of a system of airlift circulators to displace
                  about 40 million acre feet of bottom water by lifting it to the surface to be re-
                  placed with surface water circulating to the bottom. The engineering costs of
                  such a system is estimated to be approximately $30 million annually. The cost
                  of such a restoration program, therefore, would be $150 for the five-year period
                  projected to accomplishment of the preventative program.

                                                       TABLE 2

                             EFFICIENCY OF NUTRIENT REMOVAL BY VARIOUS TPXATMENT METHODS

                 Method                                   Total Netrogen       Total Phosphorous
                                                            Removal(%)__           Removal (%)

                 Activated sludge                          20 - 82                10 - 80
                 Algae removal systems                     35 - 95                41 - 100
                 Chemical precipitation                    12 - 68                78 - 100
                 Ion exchange                              32 - 99.5              95 - 99.6
                 Membrane processes                           50                     50
                 Ammonia stripping                         32 - 93 (NH3)
                 Effluent land spraying                    54 - 68                76 - 93
                 Distillation                                 75                     96

                 Source: E.J. Martin and L. W. Weinberger,   "Eutrophication and  Water Pollution@',
                         Proceedings Ninth Conference on Great Lakes Research,,   Publication no.15,
                         Great Lakes Research Division, The University of Michigan, 1966.

                                                                                                  ITI-49

                of investment commitment to particular treatment methods and facilities; and in the

                event that cheaper and more efficient technology is anticipated, provisions may be

                made to accommodate such changes and proceed with the long-range development of a

                sewerage system.

                     To draw upon a hypothetical example, what !.!ould the likelihood be of the allo-

                cation of 10-20% of the $4.5 billion prevention and restoration program resulting

                in the development of tkew or better technologies to reduce the $4.5 billion figure

                within the five-year period? Mhat would be the probability that $450 million spent

                on R&D for improved prevention and restoration systems would reduce the overall

                program costs by 30-50%? The element of probability of such forecasting can be

                better predicted if pivotal R&D is allocated to explore the possibilities to deter-

                mine just what the outlook for such developments are before larger R&D comitments

                are made to achieve certain technology level or cost-reducing targets. This point

                is particularly applicable to the large cost of sewer separation, where -- for in-

                stance -- possibility exists to increase efficiencies of combined systems and,

                thereby, lessen the need for separation.

                     On the other hand, such PAD might be seized as an excuse to delay the imple-

                mentation of already available technologies and so to postpone the social and

                economic benefits to be gained by an earlier improvement of the environmental qual-,

                ity, especially of Lake Erie. Thus, unless the R&D can be performed rather speedily

                (e.g., within a year or two), it would appear undesirable to postpone action pro-

                grams for Lake Erie',while awaiting the development of       superior or lower cost

                technologies. This does not mean that all R&D should be halted on this behalf since

                growing population and industrial expansion will increase the needs for whter pol-

                lution control measures and systems enlargements which could later take advantage of

                the improved technologies in certain coastal zone areas of Lake Erie, but especially

                                                                                            111-50

                in other great lake areas where immediate control measures are much less urgent.

                    Additionally, the principle of "multiple purpose" may be applied to R & D

                programs. Single-purpose R & D for prevention and restorative technology could

                provide other benefits by marginal increases in support to enhance spin-off value

                to other resources or functions within the coastal zon e. For instance, research

                efforts to develop techniques to prevent pollution from dredge spoil disposal by

                depositing behind diked areas along the shoreline could be augmented to explore

                different shapes and possible situations in which such spoil banks could be used

                for a wider variety of useful purposes.

                    While some of these answers may be provided in sufficient detail through

                further research to commit at an early date specific short or long range programs,

                certain problems simply will not be solved and will need to be accommodated in a

                hedge strategy. The development of science and technology is, in itself, unpre-

                dictable in many instances; and, consequently, possible future breakthroughs in

                prevention and restoration technology should be able to be adapted into whatever

                kind of program may be underway. In this regard, however, it should be pointed

                out that as various programs reach maturity in the accomplishment of their objec-

                tives, the change to "more effecient" technologies becomes more difficult because

                the total benefit to be derived is more limited. Therefore, in the development

                of new technology to improve efficiencies over existing state of the art in restora-

                tion and prevention techniques, the largest advantage is to be gained if developed

                and implemented as early as possible in the pro-ram. It would appear that the

                $4-5 billion cost outlook for pollution prevention and restoration program for

                Lake Erie would merit some further R & D to decrease that cost through development

                of more efficient technologies.

                    Other questions associated with the application of new technologies need to

                be answered in addition to the outlook for achieving certain targets. These

                                                                                             111-51

                questions concern the side effects which may also result from these technologies.

                For instance, in considering the potential of artificial destratification in for-

                mulating priorities, and strategies for restoring Lake Erie, a large number of tech-
                                                   I
                nical questions must be considered:

                     *  Can the results of destratification be adequately predicted?

                     *  Will the results of destratification all be beneficial or can adverse
                        ecological and chemical imbalances result either temporarily or
                        permanently?

                     *  What will be the downstream effect on Lake Ontario?

                     *  What other restoration technologies should be applied concurrently to
                        obtain the desired effect?

                     *  What is the time-frame involved?

                     *  What is the next level of engineering refinement necessary?

                     Our key concern with the list of recommended measures is to identify those

                which directly involve marine science and engineering and, where possible, to

                assess their priorities. Table 3, as an example, represents a summary of the

                preventative water pollution control needs in the Lake Erie Basin developed by

                the FIRCA. The measures which have important implications for marine science and

                engineering are preceded by an asterisk. The next task that follows is to derive

                a set of priorities in. carrying out these measures within the context of a marine

                sciences program. Additionally, there are many more indirect implications of

                measures in Table 3 which relate to marine science and engineering such as the

                development of in-lake pipes and storage tanks or bladders associated with "sewer

                construction", or the implications for shoreline protection associated with

                reduction of "urban and agricultural soil erosion." While the particular meausres

                 Great Lakes Restoration.     on,. cit. p. 50

                                                                                                                                            111-52

                                                                            TABLE    I

                               SU12111ARY OF    WATER POLLUTION CONTROT              NEEDS    IN   THE LAKE ERIE BASI
                                                                                                                              N

                    Category                                                Need                                   Responsibility

                    Implementation of water     quality       Sewer construction,                      Municipalities,
                    standards and enforcement                 Secondary tre'atment,                    Industries, States, and FWPCA
                    conference requirements                   Tertiary treatment,
                                                              Phosphorus control,
                                                              Equivalent
                                                              industrial waste treatment

                    Intrastate Control                        Area-wide development plans,*            States  and Metropolitan areas
                    Institutions                              Regional authorites,
                                                              Intrastate water quality standards

                    Surveillance                              Development of data b.ase in             States,  FWPCA,USGS
                                                              area
                                                                  s of greatest water
                                                              pollution control needs
                                         I_      _7
                    Evaluation                                Review progress of                       St  a.t-
                                                              municipalities and industries
                                                              in abating pollution.

                    Dredging Control                          Develop and implement                    U.S. Corps of Engineers,     FWPCA
                                                              alternatives to lake disposal
                                                              'of dredged materials

                    Oil and Gas   Well  Drilling              Prevent any wastes from these            States and drilling'industries
                                                              operations from getting into
                                                              waters of the basin

                    Research and Development                  Research into                            Federal Government
                                                              1.  Methods of tertiary treatment        States, Industries, Universities,
                                                              .2. Phosphorus control                   Local Government
                                                              3.  Sludge disposal
                                                              4.  Cause of fish mortalities
                                                              5.  Role of bottom sediments
                                                                  in lake pollution
                                                              6.- 'Ways to prevent formation
                                                                  of oxygen deficient zones
                                                                  in lake
                                                              7.  Control of soil runoff
                                                              8.  Eutrophication studies

                    Erosion  Control                          Reduce urban and agricultural            Soil  Conservation
                                                              soil. erosion                            Service, Bureau of Public     Ro ads,
                                                                                                       U.S. Corps of Engineers, Other
                                                                                                       Federal, state, and local
                                                                                                       construction agencies.

                       The    table summarizes the            immediate and long-range actions needed for pollution
                       abatement control in the               Lake Erie Basin. The immediate'actions indicated are
                       based primarily on the requirements to meet the interstate water quality standards
                       established by the five Lake Erie Basin states, similar requirements on intrastate
                       waters, and the requirements of the Lake Erie Enforcement conferences.

                       Sou.-ce: Federal Water Pollution Control Administration, Greett Lakes Region, Lake
                                    Erie Report: A Plan for Water Pollution Control, U.S. Department of the
                                     Interior, Washington, D.C., August 1968, pp. 68-69.
            *(Asterisks denote activities directly or indirectly relat@d to marine science & engineering).

                                                                                                                                  111-53
                     (Tab le  1 continued)

                     Category                                         Need                                 Responsibility

                     Training                               Bett'er and more training for         State, Federal Government,
                                                            all phases of water pollution         Industry, Institution.s, Local
                                                            control including treatment           Government
                                                            plant operation

                     Strengthen  State Pollution            Increased                             Governors and State legislatures
                     Control Program                        1.  Enforcement                       increase manpower and financing
                                                            2.  Training                          of state pollution control programs
                                                            3.  Technical assistance
                                                            4.  Research
                                                            5.  Direction
                                                            6.  Supervision of treatment
                                                                performance
                                                            7.  Planning for water quality
                                                                management

                     Financial                              Increased financial aid for-          Federal Government, States, Local
                                                            areas needing pollution               Government, Industry
                                                            abatement facilities

                     Coordination with Canada               Pollution abatement  for              States, Federal Government, 1JC,
                                                            entire lake                           Canada

                     A Look Ahead                           New 'authorities and water            Scat es
                                                            qu .1 i ty, m an ag em ent in sti tution sFederal Governmerlt
                                                            for organized and efficient
                                                            pollution control

                                                                                              111-54

                designated with an asterisk overlap with the interests or technologies of marine

                science and engineering, it is recognized that the particular agencies such as

                the FWPCA and the Corps of Engineers identified in the Table 3 example will likely

                continue to have lead responsibility in carrying out the indicated measures.

                Other measures subject to a broader spread of responsibility in the Federal Govern-

                ment may have direct implications for a marine sciences program responsibility--

                such as R & D in eutrophication and oil and gas well drilling. In the event of

                the establishment of a continued organized program of marine sciences in the

                Federal Government, (institutional) arrangements may be incorporated to provide

                the needed marine science and engineering support to these measures in terms of

                technical assistance, provision of.R & D, or assumption of certain operation

                responsibilities.
       ow            One conclusion we have reached, however, is that the prospects for restoring
                Lake Erie appear reasonable enough to merit further exploration and demonstration

                of the scientific and engineering 11'easibilities of the measures identified in the

                Great Lakes Restoration Report. Since the restoration measures fall more directly

                into the purview of marine science arad engineering, the restoration component of

                the water quality problem should be a major concern of a national marine science

                program (in close cooperation with the FWPCA and U. S. Army Corps of Engineers) as

                it addresses the problem of achieving optimal use of the coastal zone of Lake Erie.

                     Institutional implications of water quality control measures.--There is

                increasing activity by all levels of goverment in the Great Lakes Basin toward

                solving the problem of water pollution. In this regard Hennigan calls attention
                to "a singular lack of cohesiveness and unity in all this activity."l

                'Hennigan, M. cit.,

                                                                                          111-55

                He further notes that the Federal Government plays numerous leadership roles,

                including technical and financial assistance; the focusing public attention on

                water pollution problems through enforcement conferences; conducts studies and

                surveys, supports research; and functions as a "goad" to state agencies. While

                constitutionally and traditionally the fundamental program responsibility for

                water quality control resides with the states, the legal and administrative

                (including financial aspects) processes of state and local governments have been

                slow to respond to the problems fo pollution and its far-reaching impact.

                    The institutional role of the Federal Government stems from the urgent need

                for a cohesive approach to developing a many-faceted program action on the part

                of two nations as well as a multitude of problems arising from the complexity of

                Federal, state and local jurisdictions and responsibilities. The execution of

                Federal leadership in establishing an institutional framework within which the

                jurisdictional authorities may be coordinated (both politically and functionally)

                into a more effective water pollution central program would encompass the follow-
                            1
                ing elements:

                    (1)  An acceptance of this direct leadership responsibility by the Federal
                         Government.

                    (2)  Creation of a federal instrumentality responsible for water resource
                         and water quality management on the Great Lakes.

                    (3)  Intergration of all federal programming, more particularly of all FWPCA
                         program elements.

                    (4)  Establishment of federal receiving water and effluent standards applica-
                         ble to all the international waters, including waste from watercraft and
                         dredgings.

                    (5)  A federal surveillance and monitoring -program on the Great Lakes.

                    (6)  Sufficient financial assistance to states and localities to be meaning-
                         ful as promised in the enabling statute.

                IHennigan, op. cit..

                                                                                            111-56

                    (7)  In all legal actions by the states, either hearings or court appearances,
                         the Federal Government should be prepared and willing to officially join
                         the state in such action on request.

                    (8)  Evaluation of state and local programs against objective standards to
                         insure strength, stability, and effectiveness.

                    It is stressed that the Federal role can be most effective in initiating

              leadership in intergovernmental cooperation, as-provided for in the Water Quality

              Act, and which in addition contains provisions for cementing a coordinated effort

              through financial support. Indeed, in terms of the national interest in optimum

              use of the coastal zone, the Marine Sciences Council has a stake in encouraging

              and strengthening the efforts of the Federal Water Pollution Control Administra-

              tion in working with the states, local government and industry to achieve objec-

              tives for clean waters in the coastal zone of Lake Erie and Lake Superior.

                    Under the provisions of the Water Quality Act, a series of enforcement con-

              ferences was held around Lake Erie, and the states have recommended standards

              which have received the approval of the Secretary of the Interior. The states

              now have until 1972 to meet these standards. The first enforcement conference

              for Lake Superior is scheduled for May 1969.. While the dumping of taconite tail-7-..

              Ings into the lake was the main impetus for holding this conference, a precon-

              ference report from the FWPCA precludes much action being taken to curb the

                umping.  The  FWPCA preconference report, which makes a total of 20 recommenda-

              tions, calls only for licontinued.surveillance" of the discharge with reports to

              be made at six-month intervals to the conferees on whether pollution is indeed

              occurring. Among the other recommendations:

                    � Secondary treatment for municipal waste and the equivalent for indus-
                      trial wastes should be provided by January 1973.

                    � By the same date, 80% of phosphorous should be removed from wastes.

              1Air and Water News, May 12, 1969, pp. 1-2.

                                                                                         111-57

                   o Combined sewers should be separated or their pollution controlled by
                      October 1977.

                   Efforts of state governments to develop an effective thrust Into water

              pollution control are additionally having to overcome problems of internal co-

              ordination, and agreement on policy objectives and jurisdictional responsibility

              between state agencies, the states themselves and with local government. For

              instance, a legal inconsistency is seen in the case of Michigan, where the state's

              Attorney General ruled it illegal for the State's Water Resources Commission to

              grant an order to permit a mining company to pump chloride-bearing water out of

              an underground copper mine into a creek flowing into Lake Superior because it

              would violate the State Constitution's provision calling for "the protection of

              the air, water, and other natural resources of the state from pollution, impair-
              ment and destruction."I  The problem of a generally inadequate revenue base of

              state and local governments to finance water pollution control activities is be-

              coming of critical concern.

                   The 1965 water resource program enacted in Wisconsin is considered to be a

              good example of planning a coordinated effort to deal with the problem of water

              pollution and encourage optimum use of the coastal zone. The program provides for

              floodplain and shoreline zoning, financial and technical assistance to local

              government and industry, and coordination of water use, management and protective

                                                                       2
              activities. Among the provisions of Wisconsin's act are:

              l"Rules C&H Can't Pollute Hills Creek". W.ashingt2n ljost, Washington, D. C.,
               January 29, 1969
              2Hon. Warren E. Knowles  Governor of Wisconsin, "Pollution: How Wisconsin's New
               Law Speeds Compliance to Clean Up Waters," Nation's Cities, March 1969, p. 38.

                                                                                          111-58

                      Consolidate state water responsibilities on one department. Water poli-
                      cies are formulated by a seven-member board and are implemented under the
                      direction of an unclassified director appointed by the board.

                  *   Organize water management regions to utilize technical staff in the most
                      effective manner. Regional advisory boards will facilitate two-way com-
                      munication between the state and localities and will provide public par-
                      ticipation in setting water quality standards and solving other water
                      problems.

                  *   Provide financial assistance to accelerate the construction of pollution
                      prevention and abatement facilities. A $25,000,000 annual state program
                      of interest-free loans for communities will generate a $300,000,000
                      pollution abatement effort to supplement the $2,000,000 annually granted
                      by the Federal Government to Wisconsin communities. Two incentives are
                      provided to encourage further industrial participation in our pollution
                      abatement effort.

                  *   Plan water use, management, and protection. Long-range comprehensive
                      planning insures proper utilization of our waters and enables periodic
                      review of our water resource programs.

                  *   Establish criteria to balance the various uses of water (e*g.'s domestic,
                      industrial, recreational, agricultural) and develop standards to assure
                      the proper quality is available for these uses.

                  *   Control pollution by Identifying sources of pollution, Issuing orders to
                      correct that pollution, and implementing control through enforcement where
                      needed. In cases of non-compliance, the state may construct the necessary
                      facilities and-bill the owner accordingly.

                  *   Zone lands to prevent pollution. Technical and financial assistance Is
                      provided to enable local governments to establish shoreline and flood-
                      plain zoning ordinances. The state is authorized to prepare such ordin-
                      ances if local ones are not enacted.

                  *   Supervise proper operation of sewerage facilities and the installation of
                      septic tanks by licensing sewerage plant operation and granting permits
                      for septic tank installation.

                  *   Research new ways of abating and preventing pollution. Accelerating our
                      research activities and coordinating all state water research efforts will
                      focus greater attention on our water problems and the development of neces-
                     -pary means to solve them.

                  * Regulate water quality and water structures to insure proper development
                      and management of our water resources.

                  The Ohio Water Development Authority and the New York Pure Waters Authority

             also are worthy attempts toward solving the problem of water pollution. Here

                                                                                          111-59

              again, however, the effectiveness of the programs with respect to Lake Erie will

              depend upon the extent to which they coordinate with each other and the financial

              support they receive. In the efforts of states to enact programs to treat water

              pollution, particularly within. the context of the broader interests of basin or

              coastal zone resources management, the Marine Sciences Council could provide a

              valuable contribution to state government through establishing coordinative guide-

              lines of Federal activities in the Marine Sciences which will aid in achieving

              optimum use of the coastal zone.

                  With respect to the institutional problems of local government in water pol-
                                              l
              lution control, Hennigan states:

                  The first step Is consolidation of the existing collection and treatment
                  administrative units. (This does not necessarily mean total integration
                  of physical facilities.) Water and drainage responsibilities can then be
                  brought in at a later date. The New York State, 100%-supported comprehen-
       0          sive water and sewage works planning program has been an effective device
                  inmany instances in accomplishing this objective.

                  A single independent agency charged with the responsibility for providing
                  water, sewage, and drainage service to a metropolitan area would be large
                  enough to develop a high-level professional staff; to establish an effec-
                  tive rate schedule; to provide needed services In a timely, economical
                  manner; to resist the varying winds of partisan politics; to provide
                  economies of scale; to overcome boundry limitations; to serve industry;
                  to effectively regulate industrial input; to provide for proper develop-
                  ment of the waterresource; and to insure high-level treatment of waste
                  water to prevent continual deterioration of the water resource.

                  This approach would also have the advantage of producing maximum revenue,
                  leveling out coast differentials, lowering the need and demand for outside
                  assistance, establishing a base line for reasonable charges for service,
                  and establishing need, or lack of it, for outside fiscal assistance.'

                  The foundation of this approach is that water supply, sewage, and drainage
                  are complementary parts of a single water system and, furthermore, that they
                  are essential utility services, not optional governmental services. Con-
                  sequently, these services essential to urban living will not compete with
                  other needed services for limited "ad valorem" tax revenues.

                  Out aide assistance should be tied in with local action to develop a
                  feasible and workable organization and financing scheme.
       0
                  lHennigan, op - S-it - -

                                                                                          111-60

                 While the above statement provides an analysis of the specific needs of local

            government to organize more effectively to attack the problem of water pollution,

            there is a possibility that the process of coordination may break down when inde-

            pendent financing procedures as described above are practiced. Although it is fre-

            quently true that independent efforts to develop a funding base in the face of pri-

            ority needs may be more.sudcessful -- as will also be discussed in the following

            section in the case of port authorities -- the administrative and operational author-

            ity which may be associated with such independent financial procedures may not lend

            well to achieving the degree of coordination with other land and water-related re-

            source management programs. For instance, the efforts of the Federal G overnment to

            combat poverty and unemployment, particularly in the cities, has a relationship to

            Water quality programs. Regardless of the level of government sponsoring the ape-

            cific projects, the Marine Sciences Council may wish to encourage the advantages of

            coordination in line with the overall national interest in achieving optimum use of

            human and capital resources in the coastal zone.

                 The water pollution problem and the poverty problem are related through the

            appropriation of large sums of money for sewer construction, particularly in the

            larger metropolitan areas around Lake Erie since it is estimated that 25 cents of

            every dollar spent on sewer lines or treatment plants goes for direct wage payment,
            and half of this goes to unskilled or semi-skilled workers.1  Additionally, the un-

            skilled tasks in sewer construction come first; so that as work progresses, it could

            provide an-unskilled worker with on-the-job training to become an apprentice car-

            penter or bricklayer.

            I
             "Poverty, Pollution, and Sewers", Trans-Action, September 1968, p. 5.

                                                                                            111-61

                 To achieve the dual benefits of water quality control and anti-poverty measures,

            such construction projects should be subject to a process of public works coordination

            included with local, state,,and regional comprehensive planning programs. More

            specifically, coordination measures should be identified in Initial planning and

            budgeting proposals in preparing submissions for technical and financial assistance

            programs of the Federal Government. This is particularly desirable whenever multi-

            agency funding is required to be spread out according to the benefits which may be

            achieved or in identifying priority justification for single-purpose projects which

            indirectly have a wider range of benefits. Too often, opportunities in public works

            coordination are not utilized because of: (1) the single-purpose nature of the lead

            agency (which may also be an autonomous district or have a strong political constitu-

            ency), and (2) the pressure for immediate project commitments (e.g., in the face 'of

            public pressure, credit markets, critical nature of the problem). The attempt to

            recognize multipurpose benefits of a public works project after the Implementation
                                 is
            stage is started,or/close to being committed, is severely limited in the ettent to

            which the other benefits can be accommodated into construction schedules or operations.

                 Canada also is seriously concerned over water pollution. While the scope of

            the problem and its most appropriate solutions continue to be studied, corrective

            efforts (some unprecedented) are now being made. Recognizing that industrial wastes

            are becoming an increasingly dominant source of fresh water pollution in Canada, the
            1,965 Federal budget proposed a 50% tax deduction on capital expenditures made before

            the end of 1966 to prevent water pollution. This represented the first effort on

            a Federal level to deal with industrial pollution.

                 Apart from what is done in each country separately, the quality of Canadian-

            American boundary waters including Lake Brie and Lake Superior and the connecting

            channels., is a principal concern of the International Joint Commission. Indeed, it

                                                                                           111-62

             may be considered its chief concern since the first criterion for assessing    projects

             related to water quantity is their effects on domestic water supply and sanitation.

             The IJC's work on pollution began rather slowly before 1920 with a long period of

             study and apparent governmental reluctance to take decisive action. Since the war,

             however, the Canadian and U.S. Governments have developed the practice of implement-

             ing numerous IJC recommendations by joint surveillance boards,    Presently, the IJC

             is,studying pollution in the Great Lakes, for which the Governments' Reference is

             given Appendix E.

                  While the outcome of all this concern over the Great Lakes situation cannot be

             predicted in detail, it appears likely that both countries will emphasize two con-

             current approaches to pollution abatement. First, there are bound to be difficult and

             costly efforts to curtail the discharge of insufficiently treated wastes into the

             lake system, especially into the Detroit River and Lake Erie. Secondly, there will

             be concern over adequate flows of water through the lakes to dilute untreated or un-

             treatable wastes.  This will certainly influence the IJC recommendations concerning

             the best way to control excessive fluctuations in levels and flows on the lakes. The

             pollution problem also strengthens the arguments of those who contend that the full

             range of problems on the Great Lakes cannot be solved by merely manipulating the
                                 will
             available water but/require additional water to be diverted into the lakes.

                  The Boundary Waters Treat of 1909 prohibits pollution in either country to the

             injury or health or property in the other. The International joint Commission's in-

             volvement in problems of pollution of the connecting channels of the Great Lakes sys-

             tem dates from 1951 when the Governments of Canada and the United States accepted the

             water quality objectives reco ended by the Commission in maintaining these waters in

             satisfactory condition.

              Lea, OR- Sit-

                                                                                           111-63

                  The Lakes Superior-Huron-Erie Advisory Board on control of pollution of boundary

             @aters has recently repotted on the current status of pollution and of pollution
              P
             @batement in the St. Marys, St. Clair, and Detroit Rivers. The Board reviewed this
             problem at the request of the IJC because of its concern over the continued degrada-
             @ion of water quality on these international waterways. The Board's.Summary Report

             on Pollution of the St. Marys, St. Clair, and Detroit Rivers released in November

             1968 stated that phenol and oil concentrations in all three reivers, coliform con-

             centrations in the Detroit and Sto Clair Rivers, and iron concentrations in the

             Detroit River fail to meet the water quality objectives established for these water-

             ways by the Canadian and U.S. Governments. Additionally, oil, floating solids, and

             discoloration are serious problems; aesthetic values are being adversely affected;

             and wastes discharged from ships and pleasere boats using these waters aggravate

             the pollution problem.

                  The International Joint Commission convened in January 1969 public international

             meetings at Windsor,Outario and Sault Ste. Marie, Michigan in order to develop an

             informed judgment on: (1) the adequacy and effectiveness of the pollution abatement

             programs referred to in the summary report, (2) why the established water quality

             objectives are not being met, (3) additional measures that might be taken to accel-

             erate or improve abatement, and (4) ways of minimizing pollution in the interim

             before the scheduled control measures take full effect. At these meetings, the

             pollution control agencies and enforcement authorities having jurisdiction in each

             country and municipalities and industries involved were invited to describe the

             abatement programs they have under way and their timetables for achievement of the

             water quality objectives in the Detroit, St. Clair, and St. Marys Rivers. It was
                                                                      comes from the U.S. side.
             found that the Detroit River was in the worst condition,where most of the pollution/

                                                                                          111-64

               While the Canadian contribution is less in total volume, much of its sewage Is

               discharged untreated. On both sides of the river, hovever, treatment plants and
               sewage systems are being built that should cut pollution beginning this year.1

                    For the St. Marys River, the situation "continues to be unsatisfactory be-

               cause of the discharge of waste materials (particularly oils, phenols, wood chips,

               and iron) from two large Canadian industries (steel and paper)..." Both companies
               have scheduled abatement programs.2

                    For St. Clair, considerable improvements have been made with discharges from

               5 to 11 major industries on the Canadian side conforming to Ontario Water Resources

               Commission objectives. The other six have abatement programs under way or plans

               under discussion with the Ontario Commission.

                    As a procedure to insure that the remedial measures necessary to achieve the ob-

               jectives would be put into effect, the IJC is authorized to maintain continuing

               supervision over the pollution of these boundary waters. Accordingly, the 1JC

               keeps itself currently informed of conditions through periodic progress reports

               from the advisory boards that were established for this purpose, through personal

               inspections, and of the Federal, state, and provincial programs in both countries

               which have been developed to control and abate pollution of these waters -- par-.

               ticularly those programs of the U.S. Federal Water Pollution Control Administration,

               the Michigan Water Resources Commission, and the Ontario Water Resources Commission.

               The 1JC hopes and expects its efforts will serve to mobilize more effectively the

               efforts of all concerned in a concerted attack upon the serious situation in these

               1
                Air & Water News, March 3, 1969, p. 2.
               2
                Ibid..

                                                                                            111-65

             waters thich are of such importance to citizens of both the United States and Canada.

             Appropriately, the Marine Sciences Council should consider the fini'dings and recommen-
             Aations of the IJC as it is presently constituted (or as it may be constituted in

             the future) in developing its position of encouraging and assisting a more effective

             approach to water quality control in Lakes Erie and Superior.

                  The construction grant program contained in the water quality program is a pow-

             erful tool in providing incentives to combat water pollution. However, the Inter-

             state Conference on Water Problems pointed out the problem of bridging the gap be-

             tween the authorizationsfor Federal construction grants and the much lower amounts
             appropriated by Congress, 1  Controversy over efforts to find a reliable means of

             making the actual amounts of available funds more commensurate with Congressional

             authorization. centers around a number of issues:

                  (1)  To what extent should the Executive Branch (i.e., the Secretary of the
                       Interior) be able to make contracts committing the Federal Government to
                       payment of the Federal share of the principal and interest on state and
                       local bonds issued to finance construction of pollution abatement facil-
                       ities?

                  (2)  Should income derived from (federally financed) bonds be stripped of the
                       normal tax exemption attached to state and local obligations?
                                   contract procedure foreclose a state from availing itself of the
                  (3)  Should the use of the/prefinancing reimbursement provisions of the present
                       water pollution control statute?

                  (4)  Should Federal contracts be only for payment of the principal amount of
                       bonds?

                  (5)  Should state and local governments assume the full cost of interest of the
                       Federal share, in addition to paying the state and local share of Federally-
                       aided projects?

                  Since the Marine Sciences Clouncil is concerned with the optimum use of the

             coastal zone, it will no doubt be concerned with the discussion of measures involving

              "Summary of Proceedings, Interstate Conference on Water Problems", October 1968,
              Council of State Governments, Washington, D.C., p. 4 (Unpublished).

                                                                                         111-66

             Federal cost-sharing for water quality control, particularly with respect to assuring

             that proper incentives are included in the policies for coastal zone priorities in

             water pollution abatement. In addition to the provision of grants for water pollution

             abatement facilities, Federal loan practices for water resource development and water

             quality control need to be better coordinated. Of importance to loan practices in

             which cost/benefit formulas are used is the manner in which repayment schedules are

             formulated. A Water Resources Council Task Force will be reporting shortly on im-

             provements in evaluating water resources projects. Also, the Bureau of the Budget

             is preparing a circular to guide the use of discounting procedures to better eval-

             p4te programs. The Marine Sciences Council should review these reports carefully in

             order to determine the impact of Federal lending procedures on encouraging large-

             scale, long-range commitments to public works projects for water pollution control

             by state and local jurisdictions. Of particular importance is the tendency for

             higher discount rates to make borderline projects "uneconomic" and give preference

             to projects which have an early economic return over those which have long-deferred

             benefits, or benefits of an intangible nature such as water quality. The Marine

             Sciences Council should develop recommendations to the WRC and the BOB for lending

             conditions and practices to give priority to and encourage water projects of the

             widest range of benefits which could accrue.to the coastal zone. With regard to the

             extent to which the costs of water quality control should be allocated, Hennigan has
             developed the following evaluation of this question:1

                  The cost is eventually borne by the public no matter what technique is used
                  to raise revenue. Revenues should be based in some roughway on the direct
                  and indirect benefit accruing to the users and raised in the manner least
                  likely to cause opposition and most likely to develop project support. To be
                  successful, the entire effort must be evaluated to insure that Federalt stateP
                  and local efforts will, in fact, reach program objectives.

              Hennigan, op. cit..

                                                                                          111-67

                  It is my feeling that optimum programming at all levels without a meaningful
                  Infusion of financial support cannot be successful. On the other hand,
                  massive infusion of money for facilities construction without strong program-
                  ming will not be successful; experience has demonstrated this. Both meaning-
                  ful outside financial support coupled with strong federal, state, and local
                  programming are needed for a successful effort.

                  Arguments can be advanced for almost any allocation of costs from 90% federal;
                  10% state and local, as in the highway program; to 100% local with no federal
                  or state assistance. The former is successful because of the highway fund and
                  the overriding national and state interest. The latter has been a failure
                  because of lack of recognition of national and state interest and limited local
                  financial resources. The proper allocation probably lies someplace between the
                  two extremes.

                  In the face of no overriding evidence to the contrary, a 30% federal, 30% state,
                  40% local share of treatment facilities cost is a fair allocation if no ceil-
                  ings, either on individual projects or on available funds to meet schedules,
                  exist. This recognizes the national, state, and local interest and will not
                  function as a deterrent to moving ahead as has been and is the case now.

                  Under the present Federal cost-sharing program,sewer costs are non-eligible

              for Federal grants. Since sewers account for about 50% of municipal needs, this

              still means that under a 30-30-40 allocation formula the total cost burden would be

              15% Federal, 15% state, and 70% local. It is also questionable if the Federal

              Government could meet the 30% cost-sharing commitment -- even though provisions allow

              for up to 55%--under present financial burdens.  This indicates that the burden of

              responsibility will continue to fall on local and state governments to meet water

              quality control costs, particularly for those facilities needed in the next 3 to 5

              years to meet adopted water quality standards.

                  The elements to be considered in striving toward achieving an operable 30-30-40

              cost-sharing formula include:

                  (1)  Priority consideration or elegibility on the basis of need,

                  (2)  Application (largely Federal) of R&D to lower costs,

                  (3)  Provision of long- term, low interest rate loans

                  (4)      -.-Redistribution of revenue-producing tax bases, as has been under
                       consideration by the Council of State Governments, National Association
                       of Counties, and National League of Cities, involving,for instance, the

                                                                                            111-68

                       institution of block grants from the Federal Goverment to state and local
                       goverrmentso

                  From the marine sciences standpoint, the Marine Sciences Council should seek to

              assess the impact of water quality control measures on the various aspects of oceano-

              graphic and limnological activities with which the Council is concerned in order to

              provide the basis for an economic evaluation of the benefits which would accrue to

              @@these activities with an increase of water quality (or diseconomy, if present quality

              levels are maintained or continue to be reduced). This assessment would be of value

              ,@n developing a policy position on the part of the Marine Sciences Council on the

              question of the role of the Federal Government supporting technical and financial

              assistance In water quality control. In other words, the Marine Sciences Council

              should be able to report on the contribution that clean waters could make to the

              national oceanographic effort, particularly with respect to optimum use of the

              coastal zone.

                 Another overall national problem in water quality management which is particu-

              larly manifest in Lake Erie is that conventional waste treatment plants using a

              conventional waste treatment process fail to eliminate at least 10% or more of the
                                                               I
              suspended solid wastes and other organic matter.    They cannot remove the complex

              materials left over from manufacturing new products, such as plastics, detergents,

              and pesticides. Half of all industrial wastes today contain chemicals that did
                                     2
              not exist 10 years ago.   The minerals and other nutrients, such as phosphates and

              nitrates, nourish growth of algae and other offensive organisms in the receiving
              waters.3  More Federal assistance for R&D in pollution abatement is needed both to

              increase the effectiveness of waste removal and to further lower the cost of

              I
              Jones, op-. cit..
              2
              Smith, R. C., "Industry's Responsibilities for Water Pollution Abatement", Journal
              of Soil and Water Conservation,, September-October 1966, pp. 177-179.
              3Jones, op..Si-t..

                                                                                                 111-69

               conventional treatment plant processes and the cost of other waste removal techno-

               logies which are presently uneconomic to use. More specifically, further research

               is needed In identifying harmful constituents of industrial waste, particularly
               those which contain: 1

                   (1)  Toxic materials dangerous to aquatic life and to men.

                   (2)  Mineral substances which complicate the sewage treatment process when
                        discharged into municipal sewage systems.

                   (3)  Large quantities of organic substances that deplete oxygen in receiving
                        water.

                   (4)  Huge volumes of heated water which raise the temperature of receiving
                        waters and thereby frequently destroy all but the hardiest of organisms.

                   Water in the Ruhr River in Germany is maintained at a quality standard that

               meets.the needs of both industry and recreation. This standard is maintained

               through a cooperative agreement between the 250 cities and 2,500 industries to

               treat waste waters on the simple principle of "whoever uses the water must pay a
                                              2
               charge for its purification."     Similarly, the Water Quality Act makes it clear

               that industry is expected to control their pollution without public financial

               assistance. As waste control investments are direct costs of operation, industries

               are faced with uncertainty as to whether the costs of pollution control will reduce

               profits or whether these costs can be passed an to consumers much as can various

               kinds of taxes if registered uniformally among competing       firms. In some cases,

               new waste treatment processes may eventually yield useful by-products which might

               offset at least part of the cost. of pollution abatement.

                   Reliable data on costs of these kinds of processes would be desirable for each

               industry, but are usually unavailable. The cost of control equipment is often

                 Ibid..
               2Smith, op.. cit..

                                                                                           111-70

              Included in new plant appropriations or buried in regular maintenance budgets.

              However, a wide variety of companies say their pollution abatement expenditures

              .average 5% or less of overall capital spending.

                 Congress has made funds available to cities and other governmental units for

              construction of pollution control projects. There is no money in the program for

              industry. This may retard the progress of pollution control and may also force a

              different situation on a company which has limited funds available for capital

              expansion. Financial institutions are hesitant to loan money for capital invest-

              ments which do not generate additional income. Investments in waste control plants
                                      2
              fall into this category.   Additionally, some difficulty has been created in setting

              standards for individual industries in Lake Erie because of the lack of data to

              establ. ish uniform standards for all industries. This has created problems in that
              w@hereia one company is forced to expend large sums.of money for R&D and pollution

              control, his competitor may spend nothing and, ultimately, also benefit from the

              new technology by applying it only for capital cost (less the initial RO). Indi-

              vidual concerns have been reluctant to install costly waste processing plants

              required to control pollution without some assu rance that competitors will also

              assume this added cost of operation, Including foreign competitors in certain

              industries under pressure of growing imports.

                 Another difficulty of industrial pollution control is that most industries

              produce unique waste products. Consequently, other than basic pipe, pumps, and

              other fixtures, there is little opportunity to develop "off-the-shelf" pollution

              1"Industry Joins Battle to Stem Pollution Tide",@ Business Week, December 31, 1966,
              pp. 76-77.
              2Smith, op - cit

                                                                                            111-71

               abatement equipment. Each industry must develop its own waste management system,

               requiring in most instances a substantial R&D outlay in the design of a tailor-

               made system@ One advantage, however, is that many industrial control systems are

               much smaller than minicipal systems and can be built quickly without the red tape

               involved in public construction. Another approach to industrial waste management

               is that it may be more economical to change the process of production bringing

               waste content down to acceptable levels.

                   There may be certain areas of industrial pollution control that the technologi-

               cal or financial prospects for pollution abatement are extremely dim throughout the

               industry. In these cases, it may be appropriate to reconsider the original concept

               of the Water Quality Act to determine the extent to which it to in the public inter-

               est to subsidize the R&D or treatment of industrial waste from that particular

               industry. Approaches to assisting industry, some of which involve amending the

               Water Quality Act, include:

                   �  Providing long-term, low-interest loans.
                   �  Granting of tax credits Iand rapP deprecation allowances for capital
                      investment in pollution control equipment, which would also be useful
                      in encouraging re-investment in new pollution control equipment as new
                      products cause waste control plant obsolescence.

                   �  Subsidize the construction of municipal sewage treatment plants built to
                      have extra capacity andequipment to accommodate municipal sewage. While
                      industry may be taxed a service charge, they would avoid the capital out-
                      lay and perhaps a portion of the R&D costs.

                   �  The Federal Government bearing up to $1 million, or 70% of the cost of
                      research on industrial waste problems for any single research project
                      which would have industry-wide application.

                   As the matter of providing incentives to private enterprise in the development

               of ocean resources is of significant interest to the Marine Sciences Council, it

               follows that there may be certain areas of water quality control--either in actual

               abatement practices or in the pollution control service and equipment industry--

                                                                                           111-72

              where the national interest would be served with some form of incentive to industry.

              While this problem has only been touched upon above, the Marine Sciences Council

              should be encouraged to pursue this question further; and, if such a justification

              would be forthcoming, indeed the pollution crisis in Lake Erie would merit priority

              attention in encouraging and assisting industry to meet their water quality control

              obligations.

                  Recommendations for water qualiq and control.--Based upon analysis of the list

              of reconmended pollution prevention and restoration measures and the discussion of

              other quality control problems, four primary overall recommendations for measures

              in marine science and engineering have been distilled. The recommendations refer

              to the execution by a functional operating or coordinating agency of the Federal

              Government concerned with marine sciences, This agency may be either the National

              Council on Marine Resources and Engineering Development or such agency as may be

              ultimately established or designated to carry out such functions. The basic struc-

              ture of the recommendations for water quality control are described-below.

                  (1)  It is recommended that first priority be given to the problem of water
                       quality in consideration of measures for promoting the optimal use of
                       the coastal resources of Lakes Erie and Superior.

                  (2)  It is recommended that priority attention be given to providing marine
                       science and engineering support to the Federal Water Pollution Control
                       Administration and other appropriate Federal, state-9 and local agencies
                       and institutions and private entities in the prevention of water pol-
                       lution and the achievement of water quality standards adopted within
                       the Lake Erie and Lake Superior Basins. In this regard, priority con-
                       sideration. should be given to the following measures:

                           R&D to facilitate collection and treatment of municipal and indus-
                           trial waste and urban run-off waters through the use of inlake pipes
                           and storage tanks or bladders.

                       B.  Development and implementation of alternatives to lake,disposal of
                           dredged materials and control of sediment disturbances in excavation
                           operations.

                                                                                         111-73

                       C.  Prevention of waste or other ecological disturbances from oil and gas
                           well drilling and other mineral excavation operations from getting
                           into the waters of the lakes and effective remedial measures to
                           mitigate the effects of such pollution in the event of uncontrollable
                           accidents.

                       D.  Conduct of R&D into the cause of fish mortality and degradation of
                           other plant and animal wildlife and implement measures leading to
                           water quality management.

                  (3)  It is recommended that priority attention be given to the initiation of
                       a program of restoration of Lake Erie to a condition commensurate with
                       water quality standards adopted for the Basin. The restoration program
                       should be considered as a measure to augment the efforts of the M CA,
                       state, and local governments and private entities to prevent ful';.ner
                       pollution of the Lake and should:

                       A.  Be considered as an element of, and contribute towards the accomp-
                           lishment of, an integrated comprehensive program of waste management
                           of the Lake Erie Basin (and the Lake Superior Basin).

                       B.  Give priority attention to studies of the process of eutrophication
                           and accelerated aging of the lake, particularly with respect to the
                           role of bottom sediments in lake pollution; developing ways to pre-
                           vent formation of oxygen-deficieat zones in the lake and other methods
                           of restoration; and developing methods of algal removal in near-shore
                           waters.

                  (4)  It is recommended that there be established a program of environmental
                       monitoring in the coastal zone of the Great Lakes Region with priority
                       given to implementing the system initially in the Lake Erie and Lake
                       Superior Basins. The environmental monitoring system should:

                       A.  Augument and coordinate where desirable existing monitoring activi-
                           ties of governmental agencies, research institutions, and private
                           industry.

                       B.  Include atmospheric, surface, sub-surface, bottom, and sub-bottom
                           perimeters.

                       C.  Be designed as a federated, as opposed to a centralized, system for
                           collecting and distributing data to maintain as much flexibility as
                           possible and, at the same time, achieve standardization in coding
                           data to facilitate compatibility of data storage for a variety of
                           uses.

                       D. Give first priority to information needs for better water quality
                           control operations.

                  There are two significant institutional policy implications with respect to

              the pollution prevention and restoration measures for Lake Erie and Lake Superior.

                                                                                               111-74

              The first of these concern the legislative and financial frameworks being developed

              by the states adjacent to Lake Erie and Lake Superior to establish standards and

              carry out programs to implement those standards pursuant to the Water Quality Act

              pf 1965. In addition to the assistance available from the FWPCA under the Water

              Quality Act, it would benefit these efforts if a certain amount of technical and

              financial assistance were available through the aegis of a national marine sciences

              program, including the National Sea Grant College Program, to aid states and local

              governments in those particular measures lying in the realm of marine science and

              engineering. For instance, the R&D and capital requirements to develop large-scale

              and more efficient pollution prevention and restoration systems -- particularly with

              regard to the aspects involving marine science and engineering identified in the

              recommendations on the two previous pages -- may be beyond the more short-range

              oriented financing capabilities of state and local jurisdictions. This is particu-

              larly true for the western end of  Lake Erie (i.e., from Cleveland on around to Detroit,*

              where the more intensively developed shoreline and the shallower lake waters would

              appear to make in-lake collection and storage facilities an attractive alternative

              in developing metropolitan area and even regional sewer collection and treatment

              systems. Additionally, an important policy question exists as to the extent to

              which there may be national interest in providing R&D and low-cost loans to states

              and local jurisdiction and industries to achieve the water quality standards adopted

              for the region by 1972 and for the initiation of a restoration program.

                   The second institutional policy implication of water quality and control meas-

              ures concerns the role of the National Sea Grant Program. As R&D is an important

              part of developing the methods and hardware to solve the problems of pollution pre-

              vention and restoration, the National Sea Grant Program would appear to have a role

              in augmenting the educational and R&D support requirements in the marine sciences

              needed to carry out the pollution abatement and restoration of Lake Erie

                                                                                        111-75

              and preservation of Lake Superior as envisioned by state and local government, in-

              dustry, and the FWPCA and other Federal agencies. Rationale for such a role would,

              for example, focus on the eutrophication and restoration of the Lake Erie and pre-

              servation aspects of Lake Superior waters in supporting educational and R&D in the

              colleges and universities throughout the region. For example, the R&D needs that

              are characteristic of the high priority preventative and restorative measures for

              Lake Erie (including the attendant implications for other water uses and the more

              urbanized shoreline) would provide a rationale that distinguishes the priority

              needs of one lake from another. Additionally, the range of limnological and R&D

              and educational requirements for Lake Erie and Lake Superior would be applicable

              and beneficial to other Great Lakes and fresh water lakes throughout the United

              States having problems lying within the two extreme ranges of the two former lakes,

              such as Lake Michigan and Lake Huron.

                                                                                            111-76

                                        Modifications of the Coastal Zone

                    Certain uses of the coastal zone by man modify the physical configuration

               of the shoreline and bottom of the lakes. The activities which affect the greatest

               forces in such modifications involve: (1) land fills; (2) dredging and excavation;

               (3) shoreline protection, including measures to stabilize erosion and sedimenta-

               tion due to both natural and man-made forces; and (4) port and harbor development.

               Modifications in the form of structures to control the flow of waters and regulate

               lake levels are considered in the water management section of this report. Shore_:

               line and bottom configuration modifications are conducted to carry out a variety

               of'objectives ranging from dredging to maintain the depth of channels and harbors

               for navigation, to the creation of new industrial land through filling shallow off-

               shore waters and construction of offshore breal-,waters or shore erosion structures

               to protect the shoreline from erosion and siltation resulting from the forces of

               waves and currents. Basic problems associated with changes in shoreline and bot-

               tom configuration include:

                   (1)  The development of better engineering technology and techniques and in-

                        formation about coastal processes to carry out modifications more ef-

                        ficiently;

                   (2)  The minimization of undesirable effects of modifications, both to the

                        local and lakewide ecology of the lake and to other purposes, interests,

                        and uses of the shoreline, bottom, and waters of the lakes;

                   (3) The maximization of the fullest or widest range of benefits to the coastal

                        zone from modifications (T.,Yhich may eminate from either single-purpose

                        or multi-purpose uses).

                   To achieve optimal use of the shoreline -- as such use relates to physical

                                                                                           111-77

                modification of the shoreline -- requires an institutional arrangement within

                which Planning, coordinating, and constructing of modifications may be conducted

                to accomplish the above three objectives. Federal interests are essentially ad-

                ministered on a problem or functionally oriented basis throughout the Great Lakes

                Region, such as the U.S. Army Corps of Engineers' harbor and channel maintenance

                program,, the activities of the Bureau of Commercial Fisheries in fisheries

                ment, or the FWPCA in water quality control. On the other hand,   state and local

                interests are more jurisdictlionally oriented to their respective political boun-

                daries. The notion of regional planning and coordination is to achieve a coordin-

                ated interpretation of shoreline development objectives along the coastal zone in

                a manner consistent with the jurisdictional interests of state and local govern-

                ment and the functional responsibilities of the Federal Government.

                     Decisions for modifications of the physical environment at present involve

                a multi-stage course usually including several agencies or levels of government.

                For instance, the large reclamation proposal for a regional airport facility off-

                shore of Cleveland will involve the approval of use under the zoning authority

                of the City of Cleveland (or County of Cuyahoga), the authorization of the use and

                modification of the lake bottom under the terms and conditions of the Ohio State

                legislature grant or lease to the airport construction agency, the review and

                granting of the fill or diking permit by the Corps of Engineers primarily for the

                purpose of maintaining navigation interest.

                     Except for some specific port and harbor development plans -- such as those

                prepared by the Ports of Toledo and Erie or the earlier (1962) waterfront plan of

                the Regional Planning Commission at Cleveland, there is no clearly defined policy

                or guideline set for modifications of the shoreline and bottom of Lake Erie or

                Lake Superior. This is, in part, due to the fact that consciousness of social,

                                                                                              IIT-78

               biological, and engineering aspects in the treatment of the lake has only been

               awakened in recent years. The International Joint Commission is now working on

               a shore protection study in cooperation with the Corps of Engineers, and both the

               IN and the FWPCA are involved in studying and recomending measures to solve the

               pollution problem. Knowledge of the relationships between modifying coastal pro-

               cesses and the impact on lake ecology is inadequate; and consequently, it has

               largely been in response to the aftermath of problems caused by certain coastal

               engineering practices (e.g., the dumping of dredge spoils) that public and scien-

               tific awareness has demanded a closer look be taken at these problems.

                     Presently, the U.S. Army Corps of Engineers procedure for issuing permits

               for private construction in navigable waters serves as the main coordinating ve-

               hicle for physical modifications of the shoreline and lake bottom. Through the
                                                                                           C2

               Fish and Wildlife Coordination Act and other interagency agreements with the

               Department of Interior and other agencies, the Corps has sought to expand consid-

               erations beyond navigation interest to assess the water-related construction ac-

               tivities on coastal zone ecology and accelerate its research efforts to develop

               ne-,,7 technologies and equipment for restoration of coastal shores. In Lake Erie,

               the Corps is testing different dredge spoil disposal techniques to reduce pollu-

               tion and other damaging effects to the lake environment. This expanded authority

               is now being tested in the federal courts. Should the courts find that Corps per-

               mits cannot be denied on grounds other than hazards to navigation, then considera-
               tion of legislation to protect broader public interests may be warrented.1 While

               the efforts to broaden the scope of the Corps of Engineers permit process are im-

               portant, nevertheless, the planning, coordinating, and implementing of measures

               affecting the physical configuration should be conducted within the broad frame-

                Marine Science Affairs (Washington, D.C.: Office of the President) January 1969,
                pp. 71-73.

                                                                                           111-79

               work of a lakewide reclamation policy. Such a policy would be useful in providing

               general direction and guideline for consideringthe many jurisdictional interests

               and environmental repercussions of small and large scale modifications or recla-

               mation projects. A reclamation policy would includP the following elements:

                    (1)  Recognition of the comprehensive planning programs of the respective

                         local, state, and regional jurisdictions with4 n which the project

                         proposal originates.

                    (2)  Recognition of the land use control authority of local governments.

                    (3)  Recognition of the terms and conditions of state government executed

                         in the grant or lease of the lake bottom.

                    (4)  Recognition of pollution standards adapted by the states in the lake

                         basin.

                    (5)  Recognition of navigation interests of the Federal Gover, ent as well

                         as other national interests as may be reflected in the granting of

                         the Corps of Engineers construction permit.

                    (6)  The assessment of impact of the proposed project on the ecology and

                         coastal processes of the lake, including identification of those areas

                         of unknown impact and other uncertainties.

                    (7)  A process of informing interested agencies, organizations, and the gen-

                         eral public of the impending proposal and enabling their expression of

                         interest therein. (This process may include circulation and hearing

                         procedures similar to the Corps of Engineers permit procedure.)

                    There are essentially two main alternatives for formulating and administering

               a lakewide reclamation policy. The first would be for ar. existing regional agency

               such as the Great Lakes Basin Commission to formulate a policy statement and re-

               view process as a part of its on-going comprehensive planning program for water

                                                                                         111-80

                and related land resources. As this planning program is a cooperative effort be-

                tween the federal an d state -- and ultimately, local -- governmental jurisdictions,

                the reclamation policy could be formulated as an integrated element of the program.

                The reclamation policy would be administered on an advisory basis as is, or will

                be, done by the Great Lakes Basin Commission in its regular advisory role. The

                reclamation policy would be available as a guideline to the various agencies and

                Jurisdictions making decisions in order to achieve a rational approach to shoreline,

                modif icat ion.

                     The second approach stems from the possibility of opposing interests in mod-

                ification projects being expressed within certain elements of the reclamation

                policy, such as the recognizable need for offshore open space for an airport fa-

                cility versus an equally recognizable need to preserve fish and wildlife habitats
                that would be jeopardized or eliminated if the airport space were reclaimed. As

                an advisory agency, the Great Lakes Basin Commission can Trovide the opportunity

                to achieve a consistent reclamation policy;or it can bring out into the open the

                conflicts of interests within a multi-stage, decision-making process as described

                earlier. However, as an advisory agency, its influence may not be adequate to

                bring about decisions involving trade-off of benefits or values with respect to

                opposing interests, or prohibiting one Interest from overriding another (and not
                     held
                being(liable for the lost benefits).

                     It is nothing new that in some cases decisions reflecting local or single-

                purpose benefits, but which have negative value to a region, are implemented In

                the absence of a region-wide decision-making authority. While the desirability

                of a regional decision-making authority is recognized in many parts of the Great

                Lakes Region, the prospect of transferring existing authoritative prerogatives

                of local and state government or the Federal Government to such a regional authority

               is quite another matter. The creation of a regional authority -- with powers to

               either enforce actions or to veto certain actions endorsed by other levels of

               government -- can be based on setting up a regional body of elected officials

               from the region or, in essence, creating another "level" of government. An alter-

               native is for the existing executive and legislative offices of state and local

               government to grant by compact agreement certain powers relative to regional mat-

               ters to a regional authority. In this approach,a state or local goverr ent, for

               instance, would yield to the regional authority, say, the right to veto an action

               on the local or state part which would be harmful to the region. The management

               compact proposal prepared by the Great Lakes Compact Commission is an example of

               such agreement. Mile the execution of such a management agreement would be of

               great benefit to solving region-wide problems, the placing of the authority in one

               of the existing regional agencies -- which would seem to be a convenient step

               or establishing another management "authority" will be a highly sensitive politi-

               cA  move with respect to the state ane local participation. Although the Federal

               Government has an overridina national interest in the optimum use of the coastal

               zone of these lakes, there are many levels of decision-making with respect to

               achieving regional development objectives (e.g., as,may be defined later this year

               in the Graat Lakes Basin Commission Dlanning program) that should appropriately

               remain at local and state levels. It is in this regard that some state and local

               interests fear regional authority in the Great Lakes Basin Commission because of

               the predominance of federal representation on the Commission. However, it should

               be possible to overcome this fear by careful design of the terms of the management

               compact agreement. Plost importantis the need for an establishment of a regional

               authority that will eminate from local and state government "upward" to a basin-

               wide authority which will include federal representation.

                                                                                                                 III-82

                          Land fills.--The filling in of shallow waters adjacent to the natural shoreline,

                    or creation of offshore islands or their extension, stems from the need for new                                                                                     r new

                    land for urban, industrial, and port uses and for open space for disposing of

                    river and estuarine channel dredgings and the waste of by-products of urban and

                    industrial processes.

                          Decisions with regard to land fills along the shoreline are made largely on

                    an individual or project basis for whatever purpose the respective agency or owner

                    intends. As, previously mentioned, about the only coordination of filling operations

                    occurs through the permit review procedure required by the U.S. Army Corps of Engi-

                    neers for modifications of the shoreline or bottom and construction of structures

                    within navigable waters. Other controls affect land fills alonq the shoreline such

                    as local land use control ordinances (zoning) and terms and conditions set by state

                    granting or leasing authorities for the area to be filled. Some shoreline plan-

                    ning has been done by some cities such as Cleveland and Buffalo and, more recently,

                    by Toledo and Erie in conjunction with their port development programs. However,

                    except for the Cleveland Lakefront Study of 1962, these planning programs for the

                    most part have not dealt with shoreline modification standards or plans and pro-

                    vide little overall guidance for reviewing or assessing the implications of indi-

                    vidual port and harbor developments, dredge spoil or other solid waste dumping,

                    or other fills out into the lake. Widespread attention has been given to the pro-

                    blem of pollution resulting from dumping of dredge spoils and other solid waste

                    materials in fills, but here again the problem is being attacked on an individual

    		    problem-oriented basis.

    		    For example, Miami's new port at Dodge Island was created by an offshore land fill
    		    which offered several advantages over land fills extending from the original coast
                    proximity to deeper water and preservation of original coastal zone uses and recre-
                    ational boating lanes near shore away from shipping lanes. Dodge Island is con-
                    nected to shore by a bridge.

    		    Materials in fills; but here again the problem is being attacked on an individual

    		    problem-oriented basis.

                                                                                             111-83

                     The U.S. Amy Corps of Engineers has authority over the modification, construc-

                tion'(i.e., piers, dikes), and dredging of the lake bottom and navig able channels

                and filling shoreline of navigable waters which dates back to the 1899 Act, "Laws

                for Protection and Preservatlan of the Navigable Waters of the U.S.". Individuals

                or organizations wishing to make such alterations are required to obtain a permit

                from the Corps of Engineers. Although its review of the application is primarily

                concerned with the effects on navigation, by Presidential executive order, other
                public interests are to be considered including poll ution (watei, aesthetic), and
                fish and wildlife.1  The permit procedure involves circulation of the permit ap-

                plication, which includes a general description of the proposed project, to inter-

                ested parties and the conduct of a public hearing. Applications for structures

                and projects not interferring with navigation may be approved at the division level.

                Proposals involving modification of the pier head or harbor lines or channel changes

                may require decision by the Chief of Engineers in Washington. Other Corps of Engi-

                neers projects are recommended by the Corps itself or by Congress and may consider

                a wider range of project costs and benefits including flood control, water flow

                regulation, and recreation.

                    Policy guidelines should be developed in the Great Lakes Basin Commission

                Study, the IJC Shoreline Protection Study, planning programs of the respective

                state planning agencies, and appropriate federal agencies (e.g., the Marine Sciences

                 Excerpt from Regulation No. 1145-2-303 - CIVIL REGULATOPY FUNCTIONS Permits, Pol-
                 icy, Practice and Procedure (18 March 1968), p. 2.: Paragraph 4. Public Notice
                 and Consultation with Interested Parties. d. ...The notice will contain a state-
                 ment similar to the following: "The determination as to whether a permit will
                 be issued will be based on an evaluation of all relevant factors including the
                 effect of the proposed work on navigation, fish and wildlife, conservation, pol-
                 lution, and the general public interest. Comments on these factors will be ac-
                 cepted and made part of the record and will be considered in determining whether
                 it would be in the best public interest to grant a permit."

                                                                                           111-84

               Council) to guide actions involving filling and other shoreline modifications.

               For instance, the Department of Interior is pressing for better environmental qual-

               Ity consideration in the Corps of Engineers activities and the Corps'. review of

               other shoreline development and dredging activities. The Corps has been operating

               under an agreement with DOI to maintain dumping in their regular dumping areas

               located in an "approved" area several miles from shore in waters at least 50 feet

               deep. The purpose is to contain the spoil dumping in a limited area rather than

               scattering spoils at different locations.

                    The deposition of dredge spoils is a major problem in Lake Erie and Lake Su-.

               perior. In the Corps of Engineers' responsibility to maintain channel and harbor

               depths, the bottom sediments from the more popeilated areas are polluted and are

               disposed of in "wet" form.  While source materials are in scarce supply for land

               fills, dredge spoils are largely considered ppor quality, and often not available

               in sufficient quantity to use for major land fill operations. With respect to

               the latter, the scarcity of land fill materials suggests attention be given to

               development plans oriented away from the shoreline to accommodate "new land" needs

               or utilizing diking and draining methods to reclaim lake bottom lands. Dredging

               technologies could Also be developed to obtain clean materials from the lake bot-

               toms, as well as utilizing other solid waste materials such as slag. or garbage.

                    The Corps of.Engineers in 1967 initiated a $120 million program to build dikes

               around spoil dumping grounds adjacent to dredging operations to contain the spread

               of fine sediments. At the request of the Bureau of the Budget to determine the

               benefits of this pollution prevention program, the Corps started a $5,j@lllion test

               program to experiment and evaluate the results of different kinds of dredge spoil

               dumping methods, and to recommend acceptable and feasible disposal means in the

               lakes and diked areas adjacent to the shore. Included in the experimental program

                                                                                           111-85

               have been the testing of various diking materials, carriage water treatment and

               drainage methods, spoil handling techniques, and laboratory bio-essays on the im-

               pact of the sediments on fish and wildlife. The test site at Buffalo, Few York,

               was made of dikes using slag materials from nearby steel industries. A test site

               was developed at Cleveland by constructing dikes with limestone rocks covered with

               a blanket of clay to make the dike impervious to leakage of spoil solids while per-

               mitting the carriage water to drain away. Filtering of spoils to separate solids

               from carriage water was also tried. Two test sites were utilized in Maumee Bay at

               Toledo, Ohio. One of these disposal sites had been established some years ago near

               the mouth of the Maumee River. The site was selected on the basis of convenience

               as a dumping site rather than a pre-planned land fill for use when developed. The

               site will revert back to the city when the fill is completed. The other test site

               at Toledo is located along the banks of the Haumee River.

                    Dredge spoil materials would be more sought after as a fill material if: (1)

               the organic pollutants could be effectively treated or contained, (2) the fine

               sediments could be treated to provide better settling and bearing strength.charac-

               teristics    and if efficient techniques could be developed to separate solids from

               the carriage water prior to dumping or to induce better (especially quicker) drain-

               age inside of diked areas. The Corps of Engineers in these experiments has tried

               experiments with aerating spoil materials, adding slag mixtures, and -- as in Chicago

               -- even trying to run some spoil materials through a sewage treatment plant. While

               progress has been made in developing diking techniques to arrest pollution from

               dredge spoil dumping, a successful technique to render these materials into a bet-

               ter fill material has not yet been perfected.. The Corps report on this test pro-

               gram will be released later this year.

                    An engineering study for the port of Erie, Pennsylvania, suggested an approach

                                                                                              111-86

              to filling a 45-acre area extending property of the City of Erie out to the harbor

              line. (The property would eventually be used for commercial-recreation purposes.)

              The approach called for enclosing the area to be filled by a system of dikes. Due

              to the high cost of dike construction and filling at the harbor line in the 16-foot

              average depth, an intermediate location along the property 'Line where depths vary

              between 6 and 12 feet was selected as the outshore limit of initial filling opera-

              tions. "The U.S. Army Corps of Engineers is presently seeking shorefront locations

              for disposing of the Erie Harbor maintenance dredge spoil and would probably con-

              sider using this area. Each year the Corps of Engineers dredges about 200,000

              cubic yards of sediment in maintaining prescribed depths for the waterfront, harbor

              basins, and channel. Approximately half1this amount (100,000 cubic yards) is dredged

              from the waterfront and harbor basins and consists of an organic silty material or

              mud." If this material is used for land fill, it will take many years for this fill

              to consolidate under natural conditions. However, the Corgs is most anxious to

              dispose of this material'in a way that would reduce its contribution to the lake's

              pollution problem. The other 100,000 cubic yards of material is dredged from the

              channel and consists of sand which would provide a relatively sta',ble and easily

              compactable fill. It is possible that the Corps of 'Engineers could be induced to

              deposit the sandy spoil on the inshore portion of the area where it would be logica.1

              to expect any property development to begin, while the so-called "poor light waste"

              could be deposited on the outshore portion of the area where it could be left to

              consolidate.

                   Moreover, the consolidation process could be accelerated by surcharging with

              any dry material. In fact, the sandy dredge spoil could be used for this purpose

              after the entire area is filled. The entire area of 45 acres could be divided in-

              to two areas with a longitudinal dike system: the inshore area would be approximately

                                                                                              111-87

                25 acres and the outshore area would be approximately 20 acres. If necessary, the

                system could be further refined with transverse dikes to facilitate early recla-

                mation of special areas. Filling the inshore area with the sandy spoil material

                to an(average) elevation of 8 feet would require approximately 20,000 cubic yards

                per acre. Assuming that 100,000 cubic yards of this material were available

                yearly, then five acras of (new) land could be reclaimed annually, or 25 acres in

                five years. Filling the outer area to the proposed improvement line proposed in

                the Development Plan with the poor light waste would require approximately 29,000

                cubic yards per acre. The additional yardage required In this area is due to

                greater depth. Assuming that 100,000 yards of this material were available yearlyp

                then four acres of land could be reclaimed annually or 20 acres during the same

                five-year period. Shortly after the first year, building could probably commence
                on the initial five-acre inshore fill.1

                     Land fills of several thousand acres ( or diking and draining) for supersonic

                transport airport facilities are being considered offshore of Cleveland (and
                Chicago).2  These large-scale modifications would constitute major shoreline    con-

                figuration changes and require extensive engineering   and ecological study to  guard

                against adverse environmental problems which may result (applicants -- such as the
                                                                                              who
                City of Cleveland) in preliminary discussions with the Corps of Engineers/have been

                advised that they trill have to support their permit application with evidence of

                the impact of the filled or diked area on the lake ecology and other interests as

                well as "navigationif. Projects of this scale should also require major policy de-

                cisions with respect to future pattern of urban growth and population distribution

                I
                Waterfront Development Plan, Port Commission, Erie, Pennsylvania, April 1969,
                pp. 55-56.
                2
                Bloomfield, Douglas, "$l Billion Jetport in Lake", The Plain Dealer, Cleveland,
                Ohio, February 13, 1969, p. 1,6.

                                                                                              111-88

              in the coastal zone and hinterland of the region.

                    The dredge spoils collected annually from the Cleveland Harbor would cover

              an area of approximately 2 acres to an average depth of 150 feet. 'This source

              would not alone be adequate to provide fill for the 3,000-plus acre airport facil-

              ity proposed for offshore Cleveland in any reasonable number of years. Again, al-

              ternative sources of fill or reclamation methods will need to be explored for such

              large-scale projects.

                    Cost figures for filling and diking in Table 1 would suggest that new land

              costs by either filling or diking and draining out to an average depth of 10 feet

                                                      TABLE 1
                                             LAND RECLAMATION COSTSI

                                         (Ground'Elevation Plus 8 Feet)

                             So urce Material           Average                 cost/-
                                                       Water Depth

              LAND FILLS:     Dredge Spoils             4 feet                  $    5,000/acre
                                                       10 feet                       7,500/acre

                              Fresh, Clean              4 feet                  $  20,000/acre
                               Materials               10 feet                     30,000/acre

              DIKES:          Materials from            4 feet                  $  15/lineal foot
                                Building Demolition    10 feet                     30/lineal foot

                              Fresh, Clean              4 feet                  $  40/lineal foot
                               Materials               10 feet                     75/lineal foot

               Source: Waterfront Development Plan, Port Commission, Erie, Pennsylvania, April
               1968, p. 70. (Estimates prepared for demonstration of cost ranges of land recla-
               mation projects for Port of Erie, Erie, Pennsylvania).
              2
               In actual cost estimates, 15% should be added for engineering contingencies.

                                                                                             111-89

              may be economically feasible along most urban shoreline reaches around Lake Erie

              an d Lake Superior, comparing favorably with alter-native land cost onshore. On

              this basis, it would appear that it is alraady technologically feasible to reclaim

              approximately 10% of Lake Erie and most of Lake St. Clair.

                    In the face of increasing urban pressure, particularly around the U.S. shore-

              line of Lake Erie, the need for a basin-wide reclamation policy becomes apparent.

              The results of filling, while serving these needs of various land and water uses,

              may either increase or decrease the length of the shoreline depending on the manner
              in which it is done -- although there are obvious advantages, for the most part,

              in increasing its length. Additionally,the change in shoreline configuration from

              filling may affect the circulation of nearshore waters. This may cause new pat-

              terns in erosion and sediment deposition or affect pollution by either increasing

              circulation and diffusion or alternatively by causing stagnation or interrupting

              currents which would increase pollution concentration. The impact of fills on

              the ecology may be realized locally in a very short period of time; other impacts

              on the ecology may be more gradual over a greater area and may take 20 to 50 years

              to reach significant proportions.

                   In urban areas, filling with solid waste materials may be planned and organ-

              ized to serve compatible purposes of conveniently disposing of waste and carrying

              out planned improvements in the shoreline. The urban concentration along the Lake

              Erie shoreline results in the land-water interface becoming a scarce commodity.

              In such a case, for instance, a basin-wide urban policy calling for population con-

              centration -- rather than permitting linear sprawl to occur along the coastline

              -- would certainly rely upon the creation of new land and increase of shoreline

              through filling and diking operations to meet more intensive development pressures.

              This would be particularly true in the western portion of the shallow - - -

                                                                                         111-90

               Lake Erie where large areas of the lake bed are within the 10-foot depth level
               which would be technologically feasible to fill -- and possibly economically

               feasible if relatively inexpensive fill materials were available.

                   Further study should also be given to the location and shape of shoreline land

               fills as a developmental policy element of coastal zone use. A series of frequent,@

               but moderate, protrusions and indentations (inlets) along the linear distance of

               adjacent urban and industrial areas would provide considerably more coastal frontage

               than an unindented large peninsula. The main variable here would be the extra

               amount of land created over, say, the amount of excavation and dredging conducted

               to create new water bodies inland from the lake -- although when there is ample

               land fill materials, excavations would probably not be preferred because of their

               higher cost. The combined use of land fills and breakwaters provides opportunity

               for multiple use . For example, breakwaters could provide the foundation for con-

               structing a peninsula to support commercial or resort uses, including small craft

               facilities on the inshore side and beaches on the lake side, similar to the Presque

               Isle recreation area at Erie, Pennsylvania. The brealayaters might also provide

               roadway and utility tubes to man-made islands. Artificial peninsulas or spits,

               perhaps coupled with excavations along narrow river mouths, can provide enlarged

               estuaries for fish breeding and marinas. Also, land-filled islands or peninsulas

               can be utilized as space for utilities (such as waste treatment plants and nuclear

               power plants) or industrial areas, including oil or gas production equipment or

               facilities for mining beneath the present lake floor.

                   Dredge spoil dumping sites which create land fills also raise significant

               policy questions with respect to the needs and uses of these land fills. For in-

               stance, will land fills made in this manner be located at sites that were planned

               from broad social and economic criteria or selected simply because of their close

                                                                                             111-91

              proximity to the dredging location? It is also desirable that the planning of

              land fills include adequate study of the impact of the new shoreline configura-

              tions on the local aquatic ecology. Another aspect deserving of study is the

              manner in which land fill site selection or configurations would differ between

              urban and rural shorelines on the basis of need for new land or for dredge spoil

              dumping sites.

                   Land fills for urban expansion are less likely found around Lake Superior

              because of the less-inteuse urban pressure and because of the deeper waters typ-

              ically along the shore. However, the extensive dumping of taconite tailings at

              Silver Bay, Lake Superior, exemplifies the occasion of fairly large-scale filling

              (59,000 ton/day of taconite tailings) from disposal of mining wastes. Phile this

              operation is not directly evaluated in the context of the complicated variety of

              urban values, many conservation questions have been raised with respect to this

              filling operation, including effects of pollution on the lake and degradation of

              scenic beauty of the shoreline landscape. On the positive side, the mining oper-

              ations on the interior are expected to last some 40 years; and in which case, the

              low delta-shaped tailings plateau may one day provide the major beach Dotential

              along the austere and rock-bound north shore of Lake Superior. The FTRCA has been

              the lead agency in a study of the Silver Bay taconite tailing operation from the

              environmental pollution aspects. More light may be shed on this problem when

              their report is released. Suffice it to say, the Silver Bay taconite filling sit-

              uation gives rise to the policy question of the extent to which environmental

              pollution, use of the shoreline, and environmental management in relatively rural

              reaches is to be considered as an interrelated problem. Study of this problem

              by the interagency task group headed by the Fl,,IPrP. and the Corps of Engineers at

              the Duluth Water Quality Laboratory was generated initially by an agreement between

                                                                                            111-92

              the Department of Interior and the Corps of Engineers to refer dredging and filling

              permit applications to DOI for review. The Corps has also initiated a policy to

              revalidate every 5 years such permits previously granted; and in which case, the

              Silver Bay dumping permit revie,7 is now being considered by the Corns in coopera-

              tion with the Department of Interior. Under consideration is the more careful

              study of the impact the tailings have on the lake and the extent or conditions under

              which dumping should be allowed to continue. The main issues of concern in the

              study involve the assessment of the amount of damage done by dumping tailings into

              the lake and the economic costs (to the public) incurred therefrom. Feasible al-

              ternative dumping sites need also to be considered and related to economic and

              social costs before any policy decision should be reached.

                  The aesthetic effects of the green water discoloration resulting from reflec-

              tion from the suspended fine patticles in the water is one major concern. This

              phenonmenon occurs in the spring and fall and is carried along the scenic shore-

              line 20 miles or more southwest of the dumping site.

                  The effect of the dump delta on the local coastal processes and ecology after

              14 years of operation is another major problem. It is estimated that approximately

              half of the discharge tailings stay as the delta, most of which are silicates

              (sand-like). The other half are finer sediments which spread out on the bottom of

              the lake in a radius of about 15 miles from the delta to a thickness of about 2 feet

              near the delta perimeter to about one inch at the outer edge. While the localized

              effects appear to have been fairly well assessed in the study, there is virtually

              no information on the amount or effect of the small amount of extremely fine sedi-

              ments that are likely to be spreading throughout the entire lake, either on the

              bottom or by circulation, or to what extent they are dissolved or will affect the

              bio-environment. Part of the lack of information about the wider range of impact

                                                                                           111-93

               stems from the initial study design which largely assumed the impact of the

               dumping was localized.

                    Another by-issue concerns the fact that the sediments contain a certain

               amount of heavy metals,possibly of sufficient toxicity to affect fish and wild-

               life. Again, there are virtually no facts available to determine the impact of

               these materials on the lake; for instance, the rate to which they dissolve into

               solution, settle to the bottom, or are absorbed into living organisms with ham-

               ful cumulative effects. I.Tuch more sampling needs to be carried out throughout the

               lake to determine the impact of the taconite dredge tailings.

                    In conclusion, the following priority measures in the marine sciences are

               recommended to achieve desirable development of the shoreline through land fill

               operations:

                    (1) It is recommended that RO should be conducted to develop better methods

                         to reduce the pollution effects of land fill operations, and to amell-

                         orate the deleterious effects on the lake ecology of both small and large

                         scale fill and diking projects.

                    (2) It is recommended that R&D be conducted to determine the feasibility    of

                         restoring water quality conditions and retarding the accelerated eutro-

                         phication of Lake Erie through systematically constructing temporary

                         dikes in the shallower waters in the western lake basin to drain and

                         remove polluted (overenriched) bottom sediments.

                    (3)  It is recommended that R&D be conducted on the treatment of dredge

                         spoil materials to render them to a more satisfactory land fill material,

                         particularly including ways to sevarate solids from carriage water,

                         improve bearing strength of materials,and enhance settling characteristics

                         R&D should also be conducted to develop efficient dredging technology to

                         develop other lake bottom sources of fresh fill materials.

                                                                                         111-94

                   (4) It is recommended that R&D be conducted to determine the variety and

                        amount of impact. land fills have on the ecology of both the local

                        area adjacent to the land fill and the entire lake basin, particularly

                        including environmental changes of littoral drift and sedimentation

                        and erosion along the shoreline, and algal accumulation. Particular

                        attention should also be given to increasing water sampling and other

                        environmental monitoring throughout Lake Superior to determine the im-

                        pact of the taconite dumping at Silver Bay, Minnesota.

                   (5)  It is recommended that R&D be conducted to determine the ways in which

                        land fills may be shaped to create bays, inlets, beaches, and other con-

                        figurations to provide a variety of both unique and multi-purpose

                        uses along the shoreline.

                   P
                    ecommendations for priority institutional measures for achieving national and

              coordinated approach to land filling and other reclamation activities around the

              shoreline of Lake Erie and Lake Superior are as follows*

                   (1)  It is recommended that a lake-wide reclamation policy be formulated by

                        the Great Lakes Basin Commission for the shorelines and beds of Lake

                        Erie and Lake Superior setting forth the basin-dide interests which

                        should be reflected in:

                        a.) Filling and diking to develop new land;

                        b.) Filling of land for dredge spoil dumping sites; and

                        C.) Preservation and enhancement of ecological regimes in the lake

                             basins.

                   (2) It is recommended that  for the purpose of fully informing interested

                        parties of impending filling proposals, the Corps of Engineers circu-

                        late filling permit applications to the respective regional, state, and

                                                                                          111-95

                         local planning agencies within whose jurisdiction the proposal ori-

                         ginated. (In addition to expressing such interests as may be deter-

                         mined to the Corps of Engineers, local jurisdictions may control land

                         fills by enactment of special zoning ordinances to regulate this acti-

                         vity. States may regulate filling operations through their legislative

                         authority over the tide and submerged lands of the lakes, and federal

                         agencies may petition the Chief of Engineers directly. While the re-

                         gional planning authority should have the responsibility for formulating

                         a lake-wide reclamation policy in cooperation with the above-mentioned

                         jurisdictions, it should have no direct regulatory power to enforce

                         the policy unless so established by basin compact agreement between

                         the states.)

                    Dredging and excavation.--Dredging and excavation operations are conducted

               to maintain or increase the efficiency of channels and utilization of the shore-

               line of the coastal zone. Dredging maintains or increases the efficiency of chan-

               nels (both natural and man-made) through maintaining or increasing depth. Chan-

               nels may also be widened through excavation to enhance navigation or the flow of

               water for purposes of regulating lake levels, or dispersion and dilution of

               pollution.

                    To overcome the natural obstacles to sea-going transportation, rivers have

               been deepened and widened and locks constructed to enable wider and deeper draft

               ships to enter the Great Lakes from the ocean as well as navigate throughout the

               lake system. Locks and flovT*regulation works have been developed at the outlets

               of Lake Superior and Lake Erie, and the connecting channel between Lake Huron and

               Lake Erie (the St. Clair and Detroit Rivers) has been deepened to regulate flows

               to support full draft loads on ships and serve other objectives for power, lake

               level regulation, pollution control, and recreation.

                                                                                           111-96

                    Dredging and excavation play an important part in regulating flows and levels

               of the lakes as regulation Tgorks generally involve low-gated structures and en-
                                          1
               largement of outlet rivers.    Conflicts in the interests served by channel dredg-

               ing sometimes occurs such as the benefits derived from navigation through in-

               creasing the depth of the Detroit River versus the resulting increased cost in-

               eurred for shore property protection measures. Also, while the increased flow

               in the deeper channel may facilitate a greater waste-carrying load, such may be

               harmful to fish and wildlife resources downstream or in Lake Erie. Excavations are

               also done for diversion purposes such as that historically proposed for power gen-

               eration in the Niagara River below the main falls. This proposal also has stirred

               controversy over the scenic effects of the ponding that it will cause, effects

               on flow regulation of water between the United States and Canada, and effects on
               navigation.2  Excavation is done to cut new channels, slips, and inlets. This

               increases access to the water through providing increased shoreline or water

               reaches to interior areas. Dredging also increased the size of existing ports

               and harbors and can be used to construct new port areas where practical and feas-

               ible, particular ly for harbors of refuge for commercial fishing, recreational

               boating, and smaller craft used in coastal shipping. The dredging of harbors is

               largely to accommodate commercial navigation, although small recreation craft are

               becoming a more significant benefit factor in the U.S. Army Corps of Engineers

               dredging projects in Lake Erie. Dredging and excavation technologies are important

               tools in mining sand and gravel and possibly other minerals from the lake beds.

               Beeton, A. M., and Rosenberg, H. B., "Studies and Research in Regulatian of
               the Great Lakes", Proceedings of Great Lakes !qater Resources Conference, the
               Engineering Institute of Canada and the American Society of Civil Engineers,
               Toronto, Canada, June 24-26. 1968, p. 311.
               2
               Smith, H. A., "Hydro-Electric Power Development on the Great Lakes System",
               Ibid., pp. 69-70.

                                                                                             111-97

                They offer potential means for crea ting estuaries for developing fish and wild-

                life resources, and recreation and scenic values; removing nutrient-rich bottom

                sediments in restoring Lake Erie; and for developing holding reservoirs for run-

                off effluents and settling ponds. A large-scale channel excavation proposal has

                been made to construct a collector canal along the south shore of Lake Erie to

                carry treated urban wastes along the shoreline, possibly to the St. Lawrence River

                for deposit into the ocean, or into a neighboring watershed   .  The latter alter-

                native would only be feasible if water deficiency needs were significant enough

                to override the problem of the water's low quality.

                    Both excavation and bottom dredging may cause polldtion problems. The dis-

                turbances of fine sediment which in themselves contain contaminants which are

                stirred up in both the collection and deposition of spoil material cause them to

                become suspended with adverse effects on the natural ecology, such as shutting

                out light for aquatic life and covering fish eggs and larvae. These operations

                also disturb the bottoms by either removing or covering the habitats important

                for breeding and spawning of fish and wildlife, particularly in estuarine areas.

                Some controversy has been raised in this regard over the dredging and excavation

                operations envisioned in the implementation of the master plan for development of

                the Port of Toledo mentioned earlier. The plan calls for the filling of a 300-plus

                acre shore extension for new industrial and port facilities. The fill material

                for the operation is to come from channel dredging and excavation of some shallower

                water areas nearby the fill area. The displacement of the fill will be assentialty

                equal to the material dredged and removed from the surrounding area. Thus, the

                essential issues involve the extent of harmful disturbances of sediments in the

                1
                Beeton and Rosenberg, op. cit., p. 322.

                                                                                                111-98

                process of moving material from one place to another along with the other land

                fill policy issues mentioned above. While the diking of the perimeter of the

                fill area will prohibit the adverse effect of suspended fine sediments to the sur-

                rounding area, additional R&D could be directed toward dredging and excavation

                devices or techniques that would limit the disturbance and scattering of sediments

                in these operations so as to promote the benefits of land fills while alleviating

                the harmful effects of dredging disturbances or land fill diffusions of polluting

                materials. The multi-purpose use prospects achievable through excavation and

                dredging are demonstrated in the example of the construction of new "U"-shaped

                estuaries or shoreline embayments. The modification of shoreline configuration

                in this manner would provide opportunit-les for:

                      (1) Increasing the length of accessible shoreline within a given linear

                           reach of coastline, particularly if land fills were used on the seaward

                           side in conjunction with the-pp-Ject.
                      (2)  Serving water and acces ('in@iand     to several miles, thus relieving

                           pressure for adjacent coastal frontage location for certain utilities

                           and urban and industrial uses requiring large amounts of fresh water.

                      (3)  Providing a natural buffer separation between recreation and other

                           urban and in4ustrial uses.

                      (4)  Achieving additional benefit of decreased rights-of-way for utility

                           easements by being closer to user markets (which could be accrued to

                           the estuary excavation project costs).

                      There appear to be three main areas in which dredging and excavation tech-

                nologies could be improved: (1) the development of conventional mechanical or

                hydraulic dredging devices that have areater depth and volume capacity, (2) the

                perfection of dredging and excavating techniques that limit the amount of sedi-

                                                                                              111-99
               ment disturbance, and (3) the exploration of utilizing nuclear excavation tech-

               nology, particularly in connection with developing limited-size harbors of

               refuge around the less-populated shoreline of Lake    Superior.

                      In conclusion the following measures are recommended for improving dredging

               and excavation technologies utilized in the coastal zone of 141akes Erie and Superior:

                      (1) It is recommended that 'R&D be considered for developing techniques to

                           reduce the disturbance of sediments in dredging and excavation practices.

                      (2)  It is recommended that F.&D be conducted to @Ievelop deeper and larger

                           capac-ity dredging and excavation technologies, particularly with regard

                           to developing an efficient dredging system for dredging, large areas of

                           LaLe '--'rie in a restoration T)rogram..

                      (3)  It is reconanen-ded that R&D be conducted on the development of low-cost

                           nuclear excavation technologies, including the predictability of blast

                           results, improvement of safety measures, and the study and reduction of

                           radiation el7fects (if any) on fish and wildlife.

                     The follo@,ring i-astitutional measures are recommended with respect to dredging

               and excavation technologies:

                     (1)   It is recoTrmiended that the cost7effectiveness of dredg ing limited seg-

                           ments of the bottom of Lake Erie in a nro-ram of restoration be evaluated

                           through an engineering feasibility study.

                    (2)    It is recommended that the dredging and excavation operations be included

                           within the lake-wide reciariation policy described in the section on "land

                           f ills.

                     Protection aq:ainst "shoreline erosion and sedkientationz--The major causes of

               shoreline erosion and deposition of sediments are: (1) natural current and wave

               action, (2) -man-made -modifications of the si-oreline con:_H'auration or connecting lake

                 Although the cost-benefit ratio for excavating small harbors with nuclear explo-
               sives does not appear very favorable at this stage of the technology, it is possible
               that this will imDrove with further advances of the technology or widespread
               application which would bring economies of scale.

                                                                                               III-100
                channels, (3) increased run-off of silt and waste-laden waters from agricultural,

                urban, and industrial- activities, (4) gouginc, by lake ice, (5) excessive lake levels

                and run-off due to extended periods of above-normal rainfall, and (6) wakes and

                waves generated by large vessels as well. as smaller water craft. Erosion and sedi-

                mentation protection measures incluie construction of protection structures placed

                offshore, such as breakwaters, to modify shore currents; and structures placed

                alon- the shoreline and channel banks, such as rip-rap, steel pilings, and groins.

                Flood plaia management measures, such as restricting development in areas subject

                to inundation is also an alternative to the necessity of constructing flood.pro-
                tection works. 1  Hi?,h lake levels have the greatest effect on shoreline erosion,
                particularly 'beaches and flooding of lowland areas adjacent to the shoreline.    2
                Extreme 104evels may also cause increased siltation in channels and harbors due

                to the slower circulation and settling of suspended solid materials emitted into

                rivers and. the lakes.

                      Conflicts arise with respect to the benefits achieved through regulating the

                flows and levels. For instance, while maintaining lower levels for the benefit of

                flood protection, navigation and pmier uses of the lake and connecting channels may

                be inhibited. Even within one narticular use)such as recreation     )conflicts may

                arise: hig;her lake levels may enhance boating activity and marine operation, while

                lower levels may enhance beach use. Army Corpe of Engineers in cooperation with the

                International Joint Com-ission is conducting a study of shoreline protection needs

                due to Periodic excessive lake levels. It is anticipated that information collected

                by the Corps and similar Canadian surveys will help deten-nine the extent to which

                shore protection needs may be met through regulation of lake levels or through con-

                struction of protective works.

                      In conclusion, the following measures are recom-,-.iended for enhancing shoreline

                erosion protection technologies:

                1 Beeton and Rosenberg, or. cit., 1.3r). 3117-31F.

                2
                 Kirshner, Louis D., "Effects of Diversions on the Great Lakes," Proceedings of
                Great Lakes-.11ater,"'Iesources Conference, or. cit., pp. 297-298.

                                                                                             III-101
                     (1) It is recommended that R&D efforts be strengthened toward determining the

                          effects of lake and river flows and levels, wave action, ice, wind and

                          tain on the shoreline.

                     (2)  It is recommended that R&D efforts be strengthened toward developing

                          protective or other coastal engineering structures to enhance the control

                          of lake levels and flows and minimize the adverse effects of the forces

                          of erosion and deposition.

                     (3)  It is recormiended that R&D be conducted to develon techniques and coastal

                          engineering structures that will enhance multiple use of the shoreline

                          as well as serve their primary objectives of protection and regulation,

                          such as the use of breakwaters to divert offshore currents along the

                          shore to flush waters adjacent to recreation beaches.

                     In addition, the following institutioftal measures are recommended to enhance

              shoreline protection:

                     (1) It is recommended that the implications of the IJC water level study with

                          respect to shoreline protection be included in the formulation of a lake-

                          wide reclamation policy for Lake Erie and Lake Superior.

                     (2)  It is recommended that flood plain management be explored further as an

                          alternative to shore protection and flood control measures, and that the

                          Corps of Engineers effort in this area be strengthened.

                     Port and barbor development--Port and harbor development in Lake Erie and Lake

              Superior largely involves the expansion of existing facilities to handle increased
              transshipment
                           /demands, such as the programs presently under way at Toledo and Cleve-

              land and, to a lesser extent, Erie and Duluth-Superior  . Some harbors, once the
              scene of great port activity (e.g., Buffalo and Erie),  have experienced considerable
              decrease in shipping           Rather than attempt to redevelop their harbors as

              port facilities, these cities  are working toward rehabilitating their waterfronts

              to other productive urban and  recreational uses, such as the new civic center

              developments of Detroit and Duluth and the high-rise housing and recreation project

              under way at Buffalo. Completing the St. Lawrence Seaway and connecting channel

              Iprojects have given impetus to port development on the Great Lakes to accommodate

                                                                                              111-102
              deep draft traffic, I and have caused the development of such facilities as the ore-

              loading facility at Superior and the competitive efforts of Toledo and Cleveland in

              their development of transshipment facilities.

                   Chanaes are still being made in the Great Lakes and the St. Lawrence Seaway locks

              and channels and in Great Lakes shipping trends that will have a significant impact

              on port and harbor development in Lake Erie and Lake Superior,     and other Great Lakes

              ports. Both the increase in hinterland trade and trends in bulk cargo carriers will

              have some effect on the future development of port and harbor facilities. Until

              last.year,the largest ship that could operate between Lake Erie and Lake Superior was

              limited to 730 feet in length and to 75 feet in beam by the MacArthur Lock in the

              Sault Ste. Marie between Lake Superior and Lake Huron. Its draft restriction (25

              feet, 5 inches at mean low water) is not caused by locks, but by channel depths in

              the St. Marys and the Detroit-St. Clair Rivers. At high water, a ship using these

              channels can draw an additional two feet, bring the draft to 27 feet, 5 inches.

              Present maximum carrying capacities of lake vessels when loaded to this draft is es-
              timated at about 23,000 tons. 2  1.4hen the new Poe Lock in the Sault Ste. Marie was

              completed in 1968, it opened routes between Lakes Erie, Huron, Michigan, and Superior

              to ships 1,000 feet long, 105 feet wide, and having cargo-carrying capacities up to

              44,000 dqad weight tons. Two such ships are being constructed at Erie and Lorain.

              Since draft limitations remain unchanged in the Uelland Canal between Lake Erie and

              Lake Ontario and in the St. Lawrence Seaway, these new ore carriers with greater

              drafts will be able to navigate only throughout the Great Lakes system.

                                                       TABLE 2                                     3
                THE COMPARATIVE D114121SION OF THE EXISTING MACARTHUR LOCK AXT-D THE NEW POE LOCK

                MacArthur Lock                                                  New Poe Lock
                Year Constructed 1943                             Conpletion date     1963
                     Length             800 feet                      Length                 1,200 feet
                     Tlidth              80 feet                      Width                    110 feet
                     Depth over sills    31 feet                      Depth over sills          31 feet

              lGreat Lakes Water Resources Conference.op.cit., p.    25
              2Erie Waterfront Development Plan, op. cit., pp. 60, 61.
              3 Ibid..

                                                                                            1II-101
                  Present locks and channels on the Welland Canal-have the same restrictions as

             those on the St. Lawrence Seaway fron 'Montreal to Lake Ontario. Although the largest

             ships that can sail from Lake Erie to the Atlantic are 730 feet long, 75 feet wide,

             with a draft of 26 feet and a mast height of 117 feet above water, ships over 715

             feet long with beams over 72 feet are still subject to special restrictions when using
                        1
             the Seaway.   The maximum draft of a ship negotiating the Seaway between '114ontreal and

             Lake Erie is limited by the present 27-foot channel depths rather than by locks,

             which have 30 or more feet of water over the sills. L proposed All-American canal

             between Lake Erie and Lake Ontario would have locks with. the following dimensions:

             Length - 1,200 feet,Breadth - 110 feet, and Depth over sills - 32 to 35 feet.

                  Increasing the lock dimensions will permit the transit of longer and wider ships

             from the Great Lakes to the ocean. However, there will still be a draft restriction

             of 26 feet until the Seaway channels are deepened. It is conceivable that in the futur

             the channel would be deepened to permit the new lake bulk carriers, otherwise captive

             in the lakes, access to the Labrador ore fields and the Atlantic trade routes.

                  The new 44,000 dead weight ton vessels appear to be setting a new trend in lake
             freighters to a smaller number of larger and faster ships  2 which may, to a great ex-

             tent', replace the traditional fleet of 350 lake carriers w1hich range front 10-15,000 dw

             A considerable number of the latter vessels will continue to   be needed to provide

             short-haul service of other cargo, such as aggregate, or salt, to interior locations

             accessible by present harbor and channel systems which will not be feasible to de-

             velop for accommodating the larger vessels. The new vessels will require smaller

             crew ratios and will be equipped with self-unloaders. The latter may lessen the

             necessity of the expensively operated and maintained large-armed unloaders and, at

             the same time, require more open space for quickly unloading large amounts of ore

             and other bulk materials. In order to operate efficiently with self-unloading oap-
                                a few major port locations needing considerable increase
             ability and large cargo capacity, these new bulk carriers will most likely frequent/

             1Ib id. .
             2Great Lakes Vater Resources Conference, op. cit., pp. 24-25.

                                                                                           111-104
                in open storage areas and increased depth maneuvering and turn around space in the

                harbor. Increase in use of containerized cargo shipping !.@Yill similarly require more

                oven space storage area next to berthing facilities. The efficiencies of contain-

                erized shipping are also such that larger, faster and more e@mensive ships prefer

                to stop at a single port for quick loading and unloading, in which case, Duluth,

                Toledo, and Cleveland may evolve as major container transshipment terminals with

                smaller ports of the size of Erie serviced by collector "barges" carrying containerE

                to either Toledo or Cleveland. This system is already becoming operational on

                Atlantic Coast ports.

                      New trends in Great Lakes shipping are likely to lead to the development of
                                          transshipment
                certain centralized major/              terminals requiring deepening and widening

                of channel and berthing facilities and  larger open storage areas as well as in-
                                                                      at Toledo
                creased load lifting equipment, such as "Big Lucas"./or the 150-ton capacity crane

                at Cleveland,for certain processed or fabricated cargoes. These improvements will
                and excavations and land-fills. Since most of the harbors are either closely
                require both dredging /hemmed in by adjacent urban development such as either Toledo

                or Cleveland or physical barriers such as the bluffs immediately overlooking the

                port of Erie, the new open storage area needs will,for the most Dart, be met by

                creating neioy land fills.

                      The possibility of eventual use of nuclear-powered vessels will require study
                                                                                            I
                of the special port facilities necessarv to service nuclear-powered ships.     Such a

                study would likely entail new locations for port development, in which case,

                nuclear excavation may also be considered along *ith conventional excavation

                technology.

                      In addition to the development of port -facilities for commercial ship'pin,g

                operations is the development of a system of small craft harbors of refuge', parti-

                cularly in Lake Superior. These harbors could also serve as support for increasing

                recreation use of Lake Superior in supplement to other marine development projects,

                such as are under way in the Upper Great Lakes Regional Commission.

                 Senate Joint Resolution 167-Proposed Advisory Comaission on Nuclear Port Develop-
                ment (Magnuson), Cangresaignal Recgvd -,Senate, Hay 2, 1968, p. W317.

                                                                                             111-105
                      It is essential that marine terminal development be integrated with the

                comprehensive planning and developmental activities of state and local governments

                (including metropolitan area organizations), particularly with res   pect to the trans-

                portation ele-ments of these programs. However, the dynamic Dace of innovation in

                ship construction and cargo handling technology and the increasingly keen com_,eti-
                                                      transshipment
                tion for domestic and international/                trade is often beyond the capa-

                bility of local,cityand county governments to accommodate-in their port facility

                modernization or expansion plans. A major problem is the competition between

                urban and state programs of various kinds for tax revenues plus the often sluggish

                administrative processes of local gover-ament.

                      It is recognized that the esta1blishment or perpetuation of another autonomous

                layer of government such as a nort authority is, in some ways, counter to prevailin

                efforts to streamline the extreme co=lexity of agencies, jurisdictions, and author

                ties into a' inore rational and orderly planning and decision-making process in

                government. In the face   .of the raDid pace of technological innovation in the ship-

                ping industry, it appears that-at least in the short run--autonomous port authori-

                ties along Lake Erie have been better able to initiate and carry out port develop-

                ment programs. As the problems of intergovernmental coordination increase, it is

                also highly likely that in the not too distant future an overall institutional

                coordination effort may be required of drastic proportions to enable government to

                carry out its function. At that time, the role of autonomous port authorities will

                undoubtedly be re-evaluated.

                      Last year, the port authority of Cleveland moved out from under city glovernme

                and developed a port development promotion program and submitted to the electorate

                a bond program which was approved. Similarly, the Port of Toledo is an autonomous
                agency, and ig working closely with local and, regional government authorities.

                      The Toledo-Lucas County Port Authority has developed a master plan for port

                development which is beinf.), coordinated with the comprehensive planning program of

                the Toledo lqetropoiitan Area Council of Governments (COC). An application for a

                federal comprehensive urban planning grant (HUD-701) has been initiated to completf

                                                                                           111-106
               the plan and development program for the Port of Toledo as a component element
               of the COG's Comprehensive Land Use Transportation Study. The work program outlined
               in the application is a fine example of the manner of study through which port

               planning may be related to a regional planning ?rogram:
                     �    Analysis of waterfront usage on the 11aumee and Ottawa Rivers and Maumee  2

                     �    Analysis of shipping to and from the Fort of Toledo

                     �    Analysis of port-oriented employment and travel

                     �    Analysis of locational aspects of port-oriented development

                     �    Analysis of tecl-mological trends in Dort development

                     �    Preparation of waterfront development plan

                     �    Hydrographic and waterflow studies

                     The question may be raised as to what might be the role of the Marine Science.,

               Council or Great Lakes Panel in reviewing such planning applications with respect

               to national 'policy on marine science and technology and the increasing use of the

               coastal zone?

                     The recent Erie I-later Front Development Plgn )recommends a fully autonomous

               Erie Port Authority to be established by the Commonwealth of Pennsylvania with
               powers to: I

                     (1) Exercise the ri,-Yht of erpinent domain over all territory within its

                          jurisdiction.
                     (2)  Control access to, and navigation in, harbor water.

                                                                                 mo
                     (3)  Insure non-discrimjn@atory access for all persons and , des of transpor-

                          tation to waterfront installations.
                     (4)  Enforcing zoning laws in water and shore'front properties and introduce
                          additional by-laus or regulations within the framework of state and
                          federal legislation necessary to the control and protection of the port.
                                    C,
                     (5) Levy port, pilotage, or demurrage fees.
                     Besides the need for port and harbor iEnpvovements to be related to a lakewide
               reclamation policy, these improvements should be related or coordinated with the
               overall development of the urban waterfronts x%rithin which they are being develope'd.
           .........................
                Erie Waterfront Developmeni Plan, op. cit., p. 72.

                                                                                          TT-_J@n7
               This is in order to integrate both the port and harbor activity within the activity

               environment of the city with respect to enhancing the recreation or other water-

               oriented commercial opportunities in and around the harbor, and to plan, develop,

               and maintain an effective transportation system linking other transport modes from

               the port hinterland and along the coastal zone. It is usually incumbent upon such

               autonomous port agencies to coordinate with city and county and regional governrientF_

               having responsibility for planning and decision-relating to the overall growth of

               the city or area. To make such coordination effective, the local agencies need

               to respond to early development commitments in ports'and harbors evnn though some

               of these projects may be long range in their completion. This is particularly

               important with respect to comprehensive transportation planning programs where

               certain decisions may have to be made with respect to marine terminal development

               in the absence of clearly defined developm ent policies for other transportation mod

                     The following measures are reconunended for facilitating port and harbor

               development in the coastal zones of Lake Erie and Lake Superior:

                     (1) It is reco-nmended that engineering and systems studies be conducted by

                     the Department of Transportation on efficient port and harbor design, Parti-

                     cularly including:

                          (a) Patterns of ship and small craft movEnment.

                          (b) Faster and larger capacity car  go transfer equipment and methods.

                          (c) Efficient storage patterns.

                          (d) Equipment and techniques for rapid intermodal transfer of cargo

                           within marine terminals.

                          (e) Offshore cargo transfer facilities for bulk cargo tankers and

                          freicyhters using different transport modes.

                          (f) Development of a coastal cargo collection system for facilitating

                          usefulness of large bulk and container vessels in centrally located

                          marine terminals.

                     (2) It is recommended that study be given by the Corps of Engineers to the

                     development of a harbor of refuge plan for Lake Erie and Lake Superior,

                     including:

                                                                                           ITT-log

                           (a) Land use, marine ecology, and geological studies to determine

                           optimum location for creating new harbors ofrefuge.

                           (b) Studies to determine the design characteristics of harbors of

                           refuge to optimize safety and related conmertial, recreation, or fish

                           and wildlife potentials available through multipurpose development.

                      (3) It is recommended that the TAarine Sciences Council coordinate the Depart-

                      ments of Interior,- Transportation, Housing and Urban Development, and the

                      Corps of Engineers in the conduct of R&D toward developing port and harbor

                      construction standards and techniques that will accommodate multipurpose use

                      of harbor areas, including navigation aids, urban uses, recreation, and fish

                      and wildlife.

                      The followina institutional measures are recommended for port and harbor

                development.

                      (1) It is recommended that state enabling actions for autonomous port agency

                      creation and federal assistance programs in port and harbor development requil

                      the coordination of port and harbor planning development with comprehensive

                      transportation and urban planning activities within their respective juris-

                      dictions.

                      (2) It is recommended that proposals for land fill and excavation projects

                      in port and harbor development be related to the lakewide reclamation policy.

                      (3) It is recommended that the Department of Transportation be the lead

                      agency for providing technical and financial assistance to state and local

                      governmental a-encies in carrying out R&D related to the above recommendatioftE.

                      It is also recommended that state and local involvement in these R&D efforts

                      be encouraged.

                                  Social and Economic Uses of the Coastal Zone

                     Transportation.--The shoreline of the coastal zone in the Great Lakes is

                where land, air, and sea transport modes meet to form an integrated system. Tech-

                nology associated with the development of an integrated transportation system. in

                the coastal zone will frequently involve both modifications of the shoreline con-

                figuration and the effective use of open space above the coastal zone as well as

                the development of new transport vehicles and support facilities as terminals,

                cargo, and passenger handling equipment, and storage and marshalling areas. The

                Great Lakes support a vital transportation arter
                                                                 ly for commerce between the mid-

                western states of the United States and several provinces of Canada -- and with

                the building of the St. Lawrence SeaTYay provide sea transport access to the Eatt

                Coast of North America and other world ports. The location and capacity of the

                connecting rail, highway, and air transportation systems, particularly those stem-

                ming from Lake Erie, also have been major forces in shaping the economic growth

                of the region. The reliance on inexpensive, water-borne transportation has influ-

                enced the location of basic industry in port and shoreline areas to the point

                .qh-ere about one-half of the Nation's steel manufacturing capacity is presently

                located directly in Great Lakes ports, and wbich further serves large sections

                of the steel industry located in the hinterland (e.g., Pittsburgh, Youngstown,

                and Wheeling). As transportation systems expand to link Great Lakes ports with

                non-coastal regions, two things are happening: First, there is a decrease in

                pressure for port-located industrial and commercial land as efficient transporta-

                tion enables industrial growth to centralize into hinterland marketing areas.

                Hinterland communities are effectively competing for the relocation of older in-

                dustries as well as new growth Industries. Second, trends in shipping technology

                and the increase of urban and industrial groi-cyth throughout the region is creating

                greater demands for efficient and larger capacity transshipment facilities in

                                                                                            111-110

                 ports, such as Cleveland and Toledo, which have initiated ambitious port develop-

                 ment programs.

                      As mentioned earlier, some ports have actually decreased in overall trans-

                 shipment activity due to a combination of causes such as intense competition be-

                 tween ports in the form of provision of better facilities or more favorable

                 transshipment and storage rates, better hinterland access, and a greater gro-vrth

                 rate in the hinterland. Competition from rail and truck transport has also cut

                 into water-borne commerce. For instance, much of the hinterland-oriented trade,

                 once shipped through the Port of Buffalo, has decreased for these reasons. While

                 this is true for transshipment cargos, Buffalo maintains a stable tonnage of raw

                 materials -- which now makes up 95% of the total tonnage entering the port -- des-

                 tined for the steel or grain processing mills of the Buffalo area where it is

                 consumed or processed and shipped as finished products by means of various trans-

                 port modes.   Rail and water access to the Port of Erie is adequate.! however,

                 highway access is poor in spite of the growth of trucking as a mode of freight

                 transportation in recent years. The completion of Interstate Highway 79 between

                 Erie and Pittsburgh and the construction of port-access roads will correct much
                 of this deficiency.2   Erie is also a case where physical constraints, such as the

                 bluffs immediately behind the port area, inhibit linkage between land and sea

                 -transportation modes. The potential for the extended development of the Port of

                 Cleveland is constrained by a lack of coordinated rail facilities for handling

                 north-south traffic into and out of the Cleveland and hinterland area. The

                 1
                  Policies and Plans for Transportation in New "Fork State, Office of Planning and
                  Development, New York State Department of Transportation, Albany, New York,
                  September 1963, p. 31.
                 2
                  Port of Erie Waterfront Development Plan, op. cit., p. 60.

                existing hinterland development has been principally determined by highways and

                trucking services.

                     The annual closing of the Great Lakes shipping  season for 3 1/2 to 4 months

                is another shortcoming of commercial navigation on the Great Lakes. This annual

                closing of the shipping season caused by the winter freezing of the lakes creates

                great economic loss in immobilization of a fleet of expensive ships and docks,

                seasonal appointment of crews and longshoremen, cost of stockpiling of materials,

                cost of re-routing to other means of transport. As the volume of commerce in-

                creases, reduction of the non-shipping period becomes increasingly important and
                justifiable.2  Increasing the rates of flow in order to inhibit the formation of

                ice in shipping channels and canals is one means of lengthening the season. Other

                measures under consideration include the strengthening of Great Lakes cargo car-

                riers with Alexbow modifications in order to enable operation under ice conditions

                a few weeks later into the season and perhaps a few weeks earlier into the navi-

                gation season. The Alexbow is a revolutionary marine ice plow that is attached

                to the bow of a ship. The Alexbow is thrust under the ice and breaks it by lifting

                rather than by applying downward force from the weight of a conventional icebreaker
                or ship such as the U.S. Coast Cuard cutter Ojibwa.3 The Coast Guard has leased

                the Canadian-invented Alexbow ice plow to tests its efficiency. The Ojibwa is a

                110-foot long harbor tug equipped with reinforced hull capable of breaking through

                40-inch ice. Larger icebreakers of the Coast Guard fleet have been tested in the

                1
                 Sweet, David C., and Maggied, Harold S. "Analysis of a Port's Hinterlands"
                 Battelle Technical Review, October 1967, p. 5.
                2
                 Mackey, W. R., "Commercial 17avigation on the Great Lakes", Proceedings of Great
                 Lakes Water Resources Conference, June 1968, Toronto, Canada, p. 111.
                3
                 Gleasner, Dianna C., I'A Ship For All Seasons", Boating, January 1969, pp. 73-75.

                                                                                         111-112

               Great Lakeswith only moderate success. The use of air bubbles to maintain cir-

               culation in a shipping lane or channel is a method of preventing ice formation

               which has been used in marinas but has not been used in larger ports or channels.

               Power plants, or their heated outflows, could be placed offshore in strategic

               locations to facilitate more effective use of thermal effluents in maintaining

               lanes or channels (such as a small craft port of Dunkirk, Nei? York).

                    The maintenance of flow levels is important for navigation in all seasons in

               order to insure that shipping can operate economicallir, It is essential that

               ships operating in the Great Lakes be able to load their full draft and not be

               penalized by being forced to carry reduced cargo due to inadequate flow levels,

                                                  1
               particularly in the riverchannels.

                    When it is realized that an inch of draft represents 125 tons of cargo on
                    a large freighter, any decided lowering of the water level can cause severe
                    losses in quantity of cargo moved and in the unit-cost of cargo movements.
                    it Is, therefore, necessary that a stable water level be maintained on the
                    lakes and that, if necessary, additional water control and atorage capacity
                    would, of course, not only be available for navigation but would also be
                    available for other uses -- namely, hydroelectric power generation, indus-
                    trial and municipal use, and recreation.

                    The safety of navigation is dependent on adequate width and depth and Inter-
                    connecting channels and in uniformity of flow. The provision of'deeper or
                    wider channels between lakes would result in increasing the rate of flow
                    and, thereby, further lowering the water level in the lake above. The
                    answer would seem to be in the provision of more control of water levels
                    in conjunction with the channel improvements, thereby providing greater
                    uniformity of flow and stable water levels, thus reducing the need for
                    further deepening of the 102 ports on the Great Lakes. Although the cost
                    of such vork is a major consideration, it should be compared against the
                    value of the regulated levels to the economic growth of the Great Lakes
                    basin.

                    Shipping in the Great Lakes and the development of ports and harbors are

               closely related to the operation of other transport modes. Furthermore, the

               1
                Mackay, gR.. cit., pp. 109-111.

                                                                                            111-113

               design of an integrated transportation system should be accomplished with the
               land use consequences of alternative courses of action clearly in mind.    1  Many

               more miles of roads and highways will need to be built to accommodate the urban

               growth of the coastal zone of Lake Erie. With limited land and funds for high-

               way development, new technologies will be needed to increase the transport cap-
               acity of existing urban streets and highways.  2

                    The construction of completely new high-speed rapid transit systems can be

               a major factor in distributing and shaping urban growth patterns along the coast-

               line, as well as relieving the pressure from highway congestion and expansion
               needs.3   Better linkages between modes will also help relieve highway congestion.

               For instance, Cleveland has recently completed a rapid transit link from Hopkins

               Airport to the downtown district. As the Great Lakes Me-galopolis continues to

               develop, the use of fast hydrofoil or hovercraft may become feasible for ferrying

               people across and along the shores of the lakes, particularly in the western por-

               tion of the shores of Lake Erie. This kind of vehicle would be especially ver-

               satile for transversing ice when too thin to support an automobile or when inter-

               rupted by a channel made by an icebreaker.

                    Locations of freeways along the shoreline provide two control measures for

               shoreline use.                                                          (4

                                    The location of freeway  interchange facilities is an access

                2cy.?tems Considerations for Urban FreewaVs, Institute of Traffic Engineers, Nash-
                ington, D. C., October 1967, p. 43.
               2
                Turner, Francis C., "The Highway and the City"', Petroleum Today, Summer 1967,
                pp. 1-4.
               3

                            A,
                   Transit  'ine Gets on Track", Business Week, September 1968, pp. 162-63,
                166-68.

                                                                                         111-114

                control tool, and the use of excess condemnation to acquire the narroTv strips

                of land between shoreline routes and the water's edge is a valuable tool in pre-

                serving scenic qualities of the freex-,7ay and the shorelines. The freeway located

                immediately adjacent to the shoreline while offering good scenic qualities for

                travelers also rather effectively cuts off the shoreline from the hinterland

                which, depending on the ultimate use envisioned for such lands and shoreline,
                                  a
                may or may not be/desirable condition. Offshore locations for highway develop-

                ment via causeways or dikes also look more inviting as the shoreline becomes

                more densely developed.

                     Containerizatiou technology is rapidly becoming a major factor in the move-

                ment of cargo along the coastal zone and through ports to hinterland market

                areas. Many of the principles learned from builk cargo transportation, such as

                grain, ore, and Petroleum in the Great Lakes, have been applied to evolving

                modern container shipping, including development of containers and the machinery

                for loading, unloading, and transferring to other transport modes, and larger

                and faster carriers. Railroads are already adapting to larger bulk and container

                trains, such as operating unit trains. Advances in bulk truck carrier technology

                will also create the need for better intermodal exchange between trucking, rail-

                roads, and ships at marine terminals on Great Lakes ports. One of the basic facts

                of transportation is that a vehicle -- whether it is a ship, an airplane, a truck,

                a barge, or a train    earns revenue only when it is carrying cargo. Efficient

                t,irn-around time and intermodal transfer has become strategically important in

                transportation system planning.

                     T'he development of 1,000-foot long and 105-foot wide lake freighters made

                Y ,
                 "Tank Truckers nlrive on Diversified Fare", Business Week, December 7, 1968,
                pp. 84-88.

                                                                                           IIT-115

                possible by the completion of the Poe Lock at Sault Ste. Marine may also be de-

                signed to carry containers. While these large freighters will be confined to

                the upper lakes (as discussed in the section on Modifications of the Coastal

                Zone), a new "breed" of ship is being designed by Canadian naval architects which

                has the dimensions and cargo capacity,of a lake freighter and the seaworthiness

                and strength to navigate in the open ocean. These new ships can operate within

                or into the Great Lakes during the lake navigation season and then operate along

                the Atlantic Coast or other international routes during the winter. Cargo can

               be moved by these ships at the cost of 1 mill per ton mile as compared to a rate

               of 2 mills for smaller ocean vessels; at these rates, cargoes can be moved from

               lake ports to Europe as cheaply as a train can move cargo from the mid-west to

               the seaboard.

                    Container shipping may be viewed as a key factor in designing   marine terminals

               along the shoreline of Lake Erie and possibly in the future in Lake Superior. If

               they are to operate at maximum efficiency, container-ship terminals must be de-

               signed differently from the conventional roofed piers used by break-bulk ships.

               The best kind of facility for handling container ships is the quay wharf with

               powerful shoreside cranes. The wide aprons are needed to provide easy access to

               the side of a ship for tractors moving containers. Moreover, a container-ship

               terminal needs ample room for assembling containers coming from overseas f6r

               delivery inland and vice versa. Studies have shown that generally 12 to 15 acres

               of assembly area is the minimum requirement for each ship berth. Such an area
                                                                                               2
               can hold about 1,000 containers, half of which are inbound and half outbound.

               While container ship terminals should be efficiently linked to major highway and

               1
                Mackay, 92.,.cit., p. 108.
               2
                 Cargo-Handling", Scientific American, October-1968, p. 85.

                                                                                              111-116

                 and rail trunk lines, they present a problem when located in the hearts of major

                 cities already clogged with vehicles. "A port for container ships in the heart

                 of the city adds to the traffic problems and to the cost of transporting goods
                 oi,t of the port."1  other factors affect the overall efficiency of an integrated

                 transportation system, such as the extent to which the highway and rail networks

                 service the hinterland. This is why a comprehensive approach to transportation

                 planning is needed in order to best judge the extent to which one particular mode

                 (e.g., marine terminals) may be developed to achieve a balanced system.       In this

                 instance, investing in port development to handle more cargo than the hinterland

                 transport systems can accommodate, or than can be produced or consumed within

                 the hinterland is "overinvesting". Alternatives would be to phase port develop-

                 ment with development schedules of other transport networks or, in the event that

                 such other improvements are not to be made in the foreseeable future, to make

                 port improvement objectives more in scale with the overall transportation system.

                 On the other hand, as discussed in an earlier section, the improvement of port

                 facilities to accommodate new transport technology may still demand large invest-

                 ments ahead of what would be an ideally scheduled and phased development of an

                 integrated transportation system.

                      Because of the combined factors of the land and air space needed for airports

                 and the increasing difficulty in meeting these requirements on land around the

                 urbanized areas of the coastal zone, several coastal metropolitan areas have pro-

                 posed airport expansion or new airport construction offshore of their coastlines.

                 Hajor offshore airport projects have been proposed for Los Angeles, San Francisco,

                 Chicago, and more recently, Cleveland. The Chicago proposal was developed by

                 Iour Nation and the Sea: A Plan for National Action, Commission on @Uarine Science,
                  Engineering, and Resources, Washington, D.C., january 1969, p. 66

                                                                                            111-117

                 local authorities and has received preliminary approval by the FAA.  1   It calls

                 for diking and draining a circular area 4 miles in diameter and 35-55 feet deep.

                 Development is expected to take up to 3 years to complete at a cost of $432

                 million. (Construction could be completed more rapidly at higher costs.) The

                 Cleveland jetport proposal, developed bv WASA, involves filling 1,050 acres of

                 land in waters 20-30 feet deep a mile offshore of the city for a terminal anJ

                 two 2-mile long runways. The project is expected to take 10 years to complete

                 at a cost of $1.185 billion (for the initial phase). The advantages offered by

                 offshore locations for new large airDort facilities are exemplified in the Cleve-
                 land proposal;2

                      � Unlimited room for expansion,

                      �  No land removed from the tax rolls;

                      �  No obstructions in the flight path@,

                      o  Little residential noise problem;

                      �  Easy access to the central city and a ring of satellite airports;
                                                                    0

                      �  Simultaneous take-offs and landings with a minimum amount of taxiing;

                      �  Centrally located in region of high population and industrial density.

                      NASA's involvement in the proposal development stems from a request by

                 President Johnson that federal agencies assist local communities in solving their

                 problems. The concept of an offshore regional airport facility had been included

                 in an earlier transportation element of the Cleveland Ceneral Plan recognizing

                 the increase of i-ntercoastal air-taxi service reaching airline proportions and

                 the need for another airport facility beyond Hopkins and Burke Airports to handle

                 1
                  "Chicago Plans Airport in the Lake", American Aviation, July 22, 1968, pp. 39-43.
                 2
                  Bloomfield, Douglas, "$l Billion Jetport in Lake: NASA Plan is Result of Two-
                  Year Secret Study", 'I"he Plain Dealer, February 13, 1969 (Cleveland, Ohio), pp. 1,6

                the growing commuter load. NASA conducted the jetport study inhouse over a

                two-year period. The study was done quietly in order to avoid arousing constern-

                ation over specific engineering and ecological relationships before the "concept"

                had a chance to be fully expressed. For instance, the facility was located one

                mile offshore of Cleveland because it was felt this was the closest desirable

                distance due to noise and traffic (air and water) problems. However, now that

                the concept has been developed, it requires revimi by agencies, organizations,

                and citizens in the regiorswhich have an interest in or will be affected by the

                proposed facility. Presently, the (Ohio) Governor's office has initiated an

                effort to organize the various regional airport proposals that have been developed

                for the region to develop for Ohio a policy position on these proposals. Pres-

                ently, the jet-port proposal is being reviewed by other agencies concerned in the

                area, such as the local regional transportation planning agency, the port authority,

                and other state and local agencies. Additionally, Kent State University under

                th e auspices of the FAA is conducting preliminary air traffic feasibility studies

                to determine the requirements for air traffic patterns, including noise abatement

                requirements now and into the future. The Cleveland Seven-County Transportation

                Study presently being conducted is scheduled for publication this summer. The

                allotted time for the study will be inadequate to fully assess the impact of the

                new jetport proposal, such as the adjustment that may be required in new shoreline

                highway routes and capacities and the feasibility of tying into therapid transit

                system as was done for Hopkins Airport.

                     With respect to the relationship of the jetport in marine transportation,

                some aspects of the air and sea transport mode interface Are incompatible. The

                primary reasons for this lie in the problems with air space obstructions in traffic

                lanes and docking areas of ships. Furthermore, the ship-to-aircraft or aircraft-

                                                                                          111-119

                to-ship flow of people and cargo is not presently significant. However, the air

                cargo needs of future air carriers is increasing and along with it, the need for

                air carrier interface with truck and rail modes -- particularly as containeriza-

                tion becomes more feasible through large jumbo-jet aircraft.

                     Developments in air transportation technology and the increasing amount of

                passengers and cargo being carried by aircraft have placed new and greater em-
                phasis on integrating air terminals into transportation systems.1 "Containeriza-

                tion is rapidly becoming a major factor in the movement of cargo by air. Indeed,

                the economic feasibility of the huge air freighters scheduled to go into operation

                within the next five years is predicated on the prospect that containerized cargo

                will beloaded and unloaded by highly automatic mechanical devices. Underlying

                these recent and prospective developments is a change in attitude toward air

                freight. Until recently, most air freight was of a priority nature; the plane's

                speed was more important to the shipper than the freight charge. Now other rea-

                sons prevail. Air transportation enables many wholesalers to reduce inventories

                of stock on hand, because they can get more stock quickly by air freight. New

                markets have been opened or extended by air freight." For Instance, "Lockheed

                believes its L-500 could reduce the cost of door-to-door shipment to about 10

                cents per ton-mile, making it quite competitive with surface transportation for

                types of cargo not novy sent by air because of the cost." This would increase the

                cargo requirement for the jetport and, therefore, the question arises with regard

                to the assumption that Hopkins be turned into the cargo-oriented airport for the

                region. The inadequacies of Hopkins Airport to handle jumbo-jet cargo carriers

                will be the same in the future as it Is now.

                I
                 ?'Cargo-Handling", op. cit., pp. 87-88.

                                                                                           111-120

                     Another problem in integrating large new airport facilities into the compre-

                hensive planning for a regional transportation system and one which is similar

                to the need for rapid innovation in port facilities mentioned earlier in this

                section is that the construction of major airport facilities requires about 10
                years lead time: I

                     Airports being finished today were designed 10 years ago for an earlier
                     generation of jets, with the idea that the supersonic transport would come
                     sometime in the mid-1970's, allowing time to lengthen runways and build
                     larger flight stations. Today's airports are in trouble because the tech-
                     nology of aircraft engine makers has outstripped the foresight of airport
                     planners.

                     In addition to the possible need for increased air cargo handling space, the

                demand for industrial land of the kind that prefers to locate near or adjacent to

                air cargo terminals may create pressure for additional expansion of land fills.

                With respect to the land fills for the jetport proposal, dredge spoils from the

                Cuyahoga River reportedly are not suitable for fill material due to the nature of
                                                               2
                the fine sediments which wash douni the river.    Consequently, developers will

                probably turn to the lake bottom for a source of dredge materials for filling

                the airport facility. Such a large-scale dredging operation needs to guard

                against pollution effects from disturbance of bottom sediments. Quite importantly,

                it offers multiple-use opportunity for offshore development which Improves the

                benefit-cost ratio of such a high-cost fill project. An offshore storm-sewer

                holding reservoir had been proposed in conjunction with the earlier offshore air-

                port facility proposal involving a ttapezoidal-shaped dike area about 3,000 feet

                into the lake and one.mile long easterly of Cleveland's do-Vmtown area. The pro-

                posal-is now also being studied by the FWPCA. If the fill material were satis-

                1
                 "Mammoths of the Air Worry the Airports", Business Week, December 14, 1968, p.60.
                2
                 It would also require about 40 years of river dredging at the present annual
                 rate of dredging.

                                                                                            111-121

                factory, dredging from- this area would provide both a convenient source and in-

                crease the holding capacity for the storm drainage reservoir.

                     The Cleveland Jetport Proposal raises the many implications of shoreline

                modification and for land use, transportation, fish and wildlife, and coastal

                processes questions involved with the use of offshore waters and bottom areas.

                While the jetport facility is yet an expression of concept, certain decision-

                making wheels have already been set into action. For example, the Governor of

                Ohio has already asked for legislation to expand the state Port Authority Act

                to enable the Cleveland Cuyahoga County Port Authority to expand its authority to

                include airports, bridges, buildings, and transit systems. The City of Cleveland,

                while agreeing with the principle of the concept, is questioning the necessity of

                such new authority inasmuch as the city now operates the Burke and Ilopkins Air-

                ports. The City of Cleveland is transferring to the Cleveland Cuyahoga County

                Port Authority the waterfront areas of the city to develop into public port fa-

                cilities, especially for intermodal transfer. This is to augment docking facil-

                ities located along-the Cuyaho%ta River which are virtually all owned by private

                industry and serve, in a sense, as a backdoor service route to industries located

                along the Cuyalhoga River.

                     The offshore location of the jetport, in the case of Cleveland, will require

                a grant or lease from the State of Ohio for the submerged bottom lands. In the

                event the state Port Authority Act is expanded to administer the jetport, the

                requirement that a comprehensive development plan be formulated to support the

                state grant or lease application for the lake bottom area, as was the case of

                Toledo port development program,should be naintained. Also, the notion of a

                comprehensive development plan indicating the land use, environmental Impact,

                transportation implications, and coordination requirements should be required

                                                                                             111-122

                in support of all large-scale projects in offshorelwaters. other local agencies

                are questioning the impact of the large land fill'for interrupting the easterly

                flow-of currents along the shoreline, which may result in increased sedimentation

                west of Cleveland in erosion of the east side. Ideas such as moving the facility

                further out into the lake and tunneling the access road have been suggested for

                consideration in this regard. Such modifications in the present plan may cost

                more money b4t, at the same time, may introduce a new set of benefits.

                     As of March 1969, the Corps of Engineers has not yet been contacted with re-

                spect to acquiring the development permit required. The Corps of Engineers, how-

                ever, has indicated that the applicant -- whether it be a local port authority,

                the City of Cleveland, or the State of Ohio -- will need to provide information

                to assess the impact of the jetport proposal on navigation, fish and wildlife,

                and shore processes in order that a rational decision.can be made by the Corps.

                Other agencies will also be involved through the Corps of Engineers' permit re-

                view procedure, such as the FVJPCA, the Bureau of Commercial Fisheries, and the

                Department of Health, Education, and Welfare. Preliminary reactions on the Corps'

                part have indicated its expression to maintain a navigation approach to the Cleve-

                land Harbor in terms of ships crossing the glide path of the airport. The Bureau

                of Commercial Fisheries, for example, intends to review the impact on    fish and

                wildlife in response to its being notified pursuant to the Corps of      Engineers'

                permit review procedure. Additionally, the Bureau may be involved in     doing an im-

                pact study on a cost-reimbursable basis from the agency authorized to    conduct the

                planning and engineering studies on the airport facility. In this instance, a

                portion of the study monies would be allocated by the lead study agency to the

                Bureau of Commercial Fisheries to evaluate the impact on fish and wildlife and

                develop ways to protect the resource, minimize losses, and also to assure that

                                                                                              111-123

                wildlife hazards are minimized to air traffic -- such as problems that might

                arise from migratory waterfowl during certain seasons.

                     A recent study concluded that "the sonic booms from the Concorde and Boeing

                SST's operating during the daytime sometime after 1975,at frequencies presently

                projected for long-distance supersonic transport of passengers over the United

                States,-will result in extensive social, political, and leaal reactions against

                such flights at the beginning of, during, and after years of exposure of sonic

                booms from the flights. Wo data can be found to suggest that any other conclusion
                is possible.' 1  The FAA and other federal agencies and aircraft manufacturers are

                continuing R&D into possible ways to lessen the Intensity or impact of sonic booms.

                With particular respect to SST airport proposal zone, initial studies made by the

                Department of the Interior of noise and sonic booms as a new form of environmental

                pollution should be oontinued and strengthened, particularly with respect to the

                effects on fish and wildlife, such as damaging bird eggs or larvae of aquatic
                life or damaging wildlife having strong audio-sensory characteristics.     2

                     The regional jetport facility concept should also be reviewed by other areas

                in the region such as the agencies conducting comprehensive transportation plan-

                ning programs in the Detroit region, the Toledo region, as well as the Cleveland

                area. While such a jetport may be justified on regional needs, the question of

                regional location is raised and         should be answered or verified by region-

                wide analysis. Such a broader areal analysis would logically be forthcoming from

                the federal agency such as the Department of Transportation which would be asked

                I
                 Kryter, Karl D., "Sonic Booms from Supersonic Transport", Science, Vol. 163,
                 24 January 1969, pp. 359-367.
                2                         i
                 A Report of the Secretary of the Interior of the Special Study Group on Noise
                 and Sonic Boom in Relation to Man, November 4P 1969, Washington, D.C., pp. 28-L9.

                                                                                             111-124

                to provide financial and technical assistance for development of t1he proposal

                including the requirement of impact studies on fish and wildlife, coastal pro-

                cesses, and navigation and consideration thereof in the final decision for the

                airport facility. The Federal Aviation Agency has reviewed the project and has

                endorsed the principle of the concept, but indicates more precise studies will

                be required before definite commitments can be made.

                     11@ffiile Great Lakes trade has grown in record proportions each year, the
                share of this cargo carried by U.S. flag vessels has steadily decreased."    1  Part

                of this decrease is due to the inability of older, slower American lake ships not

                being able to compete with new, high-speed, foreign-flag vessels in transoceanic

                shipment; and part is due to truck and rail shipping advantages for Tfid-West

                Atlantic ODast transshipment. Since 1955, the lake fleet itself has declined by

                more than 130 vesscls until today less than 250 ships remain in the Great Lakes

                fleet. Approximately 45% of these vessels were built before 1915, and only 30 new
                bulk carriers have been added to the fleet since 1950. The two new 1,000-foot
                bulk carriers presently under construction will be the first new U.S. flag ves-
                sels to join the lakes fleet since 1961. Careful study bythe Department of

                Transportation will need to be made to determine the extent to which it is in

                the national interest to renovate and update the Great Lakes fleet to meet modern

                transs hipment needs, both for intra-lake bulk cargoes and foreign trade. The de-
                velopment of large container and bulk cargo port and ship capacities may change
                some of the present cost advantages enjoyed by rail and truck shippers to Atlantic
                Coast shipping points - chiefly, 'New York and Baltimore. Policy requiring
                European-destined U.S. military cargo to be shipped on U.S. bottoms, coupled with

                 Dingell, John, "The Mounting Problems of Great Lakes Shipping", Maritime, December
                 1968, pp. 30-32.

                                                                                        111-125

                the infrequency of U.S. ocean ships to Great Lakes ports, has raised considerable

                consternation on the part of Great Lakes ports, particularly since a significant

                amount of such material is manufactured in the Great Lakes region and sent by

                rail to New York and Baltimore ports for shipment overseas. Besides suggestions

                of preferential shipping price supports for such cargoes, the new container

                carriers mentioned earlier being developed by Canada may offer a design concept

                that U.S. shipbuilders could produce and effectively compete for military and

                other cargo out of Great Lakes ports, particularly Toledo and Cleveland. Other

                proposals to better the position or condition of the Great Lakes fleet is to al-

                loWte portions of the subsidy extended to other U.S. shippers for construction

                of new vessels or modernization of old ones to Great Lakes shipping firms. How-

                ever, since the main factor distinguishing ship design and affecting operation

                factor-- in the size of the depth of the St. Lawrence Seaway and Welland Canal,

                economic study should be given to whether it will in the long run be more feas-

                ible to "treat the ships" or "treat the locks". It would appear that to compete

                effectively on an international trade basis, Great Lakes shipping routes will

                have to accommodate a wider variety of the new ships evolving in this araa. Hope-

                fully, the navigation element of the Great Lakes Basin Commission Comprehensive

                Framework Study will review this problem. The ob4ective of this study will be

                Vito assess the economic and social benefits derived from navigation development
                                                                              C;

                for the Great Lakes Basin and determine the extent, nature, and timing of a de-

                velopment program necessary to meet the requirements of water-borne transporta-
                tion in the future." The scope of work for the study is as follows'  1

                     (The scope of work)...will include a description of existing transportation
                     networks serving the Great Lakes Region and a detailed discussion of the de-

                l
                 Comprehensive Framework Study, Great Lakes Basin Commission.

                                                                                          111-126

                    velopment of harbors, channels, and deepening projects which make up the
                    so-called fourth seacoast of the United States. The quantities of comerce
                    moved and the relationship of transportation networks will be assessed and
                    together with economic studies will be used to project water-borne com-
                    merce for the planning periods of 1980,2000, and 2020. The importance of
                    non-commercial navigation to the economic and social aspirations of the
                    people of the region will be determ�ned. A framework plan to g uide navi-
                    gational development in the planning period will be stated.

                    In conclusion, the following measures in marine science and technology are

               recommended to assist in the development of an efficient, integrated transporta-

               tion system in the coastal zones of Lake Erie and LaIr.-,e Superior:

                    (1) It is recommended that the Department of Transportation     develop a

                         policy for the development of an integrated and balanced transporta-

                         tion system in the coastal zone of the Great Lakes region and related

                         areas. In this effort, it is recommended  that the Marine Science Coun-

                         cil and the Corps of Engineers and the Maritime Administration cooper-

                         ate with the Department of Transportation in identifying and formula-

                         ting the policy elements concerned with marine transport including:

                         a. The support of R&D to develop requirements for developing port and

                             marine terminal and ship design standards to facilitate efficient

                             transport and intermodal transfer of cargo and passengers.

                         b. In cooperation with state and local agencies, the evaluation of

                             the impact of port and harbor development on:

                             1)  The pattern of population distribution and economic developmeat

                                 in the lake basins to assure such development achieves objec-

                                 tives of optimum development as supported by the designated

                                 regional planning agency for the basin; and

                             2)  Fish and wildlife and coastal processes of the lake, so that

                                 damage or interruption to these regimes may be minimized, or

                                 actually enhanced where possible.

                                                                                        111-127

                     (2) It is recommended that, as a function of transportation policy in the

                          Great Lakes region, the Department of Transportation be delegated the

                          lead agency to coordinate the following R&D needs (some of which are

                          already underway) with the appropriate agencies, including the Corps

                          of Engineers, Coast Guard, Maritime Administration, Federal Aviation

                          Agency, St. Lawrence Seaway Development Corporation, the Great Lakes

                          Basin Commission, and appropriate state and local agencies as may be

                          appropriate for particular studies;

                          a. R&D on improved ship design to reduce fuel costs and to improve

                              speed of cargo handling, both bulk and container;

                          b.  R&D on new ship design Such as hydrofoils and hydroskimmers;

                          c.  Forecasting regional requirements for port aapacity, docking fa-

                              cilities, and canal lock capacity;

                          d.  Studies on economic advantages in extending shipping season, in-

                              cluding R&D in predicting ice formation and breakup;

                          e.  R&D to improve icebreaker performance, including modification of

                              ships to break moderately thick ice (Alexbow, strengthened bows

                              and bottoms, improved bow design);

                          f,  Charting or removal of navigation hazards (underwater rocks, oil

                              and gas drilling platforms);

                          g.  Navigation and safety aids to shipping.

                                                                                                   111-128
                        Recreation.--In 1959, the Department of the Interior and the National Park
                 Service conducted a Great Lakes Shoreline '.Recreation Area Survey.     I   The survey
                 indicated a "total'!2  shoreline of 5,480 miles including 1,4cJ0 miles on offshore

                 islands. Only 710 miles (13%) at that time were in -public ownership, of which 694

                 m
                   iles were existing shoreline available to the public. Another 426 miles of pri-
                   i                         J.

                 vately owned shoreline were identified as possessing important opportunities for

                 use in recreation and other public benefits. These were divided among 66 indivi-

                 dual areas with 40 in Hichigan, C in New York, 7 in Wisconsin, 6 in Ohio, 2 in

                 T
                 .@,Unnesota, and one each in Illinois, Indiana, and.Pennsylvania.

                       14hile the Great Lakes Basin is generally well endowed with public land and

                 fresh water-oriented recreation potential, less than 2% of the Lake Erie Basin
                 is devoted to public recreation,    3 and while large portions of the Lake Superior

                 hinterland are owned by state and natural forests and state parks, public access
                                       becoming
                 to the shoreline is/increasingly limited. Only 10% to 15% of the shoreline is

                 publicly owned.

                       The 1,100 miles of Lake Superior shoreline are characterized by spectacular

                 scenic views, rugged terrain and waterfalls interspersed with small pebble beaches,

                 and occasional lowlartu's and marshes. The pristine waters are backdropped by vast

                 forests.                1-Torth Shore Drive -- now of freeway standard -- provides an

                 access to the 150--mile stretch from Duluth to the Canadian border. Only about 101%

                 of this shoreline reach is publicly owned. Wisconsin's 325 miles of shoreline

                 include 175 miles on the Apostle Islands and the Kakagon and Bad River Marshes of

                 -;Mportant significance to migratory waterfowl. The 23 Apostle Islands have been
                 proposed as a 1,1,ational Park.4  The opening of the Straits of Mackinac Bridge has

                 improved access to 1.1ichigan's Upper Peninsula shoreline of Lake Superior. Sixteen
                                            r@

                 1 Remaining Shoreline Op-portunities, Great Lakes Shoreline Recreation Area Survey,
                   19591 Department of the Interior and the National Park Service, Washington, D. C.p
                 2 The "total" shoreline included the lake ends, connecting waterways and outlets
                   to the sea.
                 3
                   Fater Oriented Outdoor Fecreation -- Lake Frie Basin, U.S. Bureau of Outdoor
                   112creation, Central I.Region, Ann Arbor, I-lichiann, Aueust 19@6, P. 2-1.
                 4,                                    : '         .1
                   I-inggold, 17ancy Rainer, "Discover the kncient A-postle'Tslands'', toating, March
                   1969, pp. 43-46.

                                                                                             I li- 1 41, 9
                 percent of Michigan's mainland shoreline of Lake Superior is under public ownership.

                 Isle Royale National Park is the DrinciDal offshore feature now publically owned.

                 The recieation use of Lake Suverior is hampered by short summer season, cold waters,

                 frequent inclement weather and distance from major metropolitan population centers

                 where shorter vacation, weedend and day use recreation demand is highest. To tap

                 the longer travel tourist market, the Upper Great Lakes Regional Cormiission is

                 embarking on a program to assist states and local governments in the development of,

                                ' recreation and tourist program focusing on (1) establishment of
                 a year-aroundl                                          1@

                 a network of national parks, lakeshores and rivers, (2) restoration of fisheries,

                 lakes and shores, (3) development of (coho) salmon and trout fisheries, including

                 the development of spawning grounds, (4) small craft harbor development, (5) lamprey

                 control, and (6) environmental improvement, including the use of senior citizens

                 and other unemployed and underemployed to maintain the appearance of recreation

                 areas.1

                       Industrial, commercial, and residential development have committed only about

                 one-third of the shoreline of Lake Superior. Considerable prime recreation and fish

                 and wildlife potential are available along this sparsely populated shoreline. The

                 Lake Superior shoreline provides a natural or wilderness-oriented shoreline recrea-

                 tional potential. This natural resource potential exists in the form of the present

                 relatively unmarked shoreline -- except the Taconite tailings dumping at Silver Bay,

                 Minnesota, or the copper mining at Keweenaw Peninsula and the few urban centers --

                 Duluth, Superior, and Marquette. The exploitation of this potential will depend

                 unon the extent to which this natural resource is able to be preserved, including

                 developillient. of policies and zoning regulations to keep development set back from the
                 shoreline, to prevent water pollutldlt@  and to blend shoreline development with

                 the landscape. Activity-wise, the low temDerature waters of Lake Superior dis-

                 courage extensive swimming activity, the exception being the warmer waters near the

                 thermal heat outflow from the power plant at Marquette. The provisions of more

                 frequent harbors of refuge, better charting and weather, forecasting, navigation

                 EV Personal Comnunication with Dennis Stravros, Upper Great Lakes Regional-
                 Commissidn.

                                                                                           111-130
                aids, and marina facilities could increase recreation boating activity on Lake

                Superior.

                      While economic development of the Lake Superior Basin will continue to command

                its place along the shoreline, the scenic beauty and pristine character of Lake

                Superior is a truly unique resource in the United States and, for that matter, in

                the world. It is for this reason -0-.at the ethic of preservation of environmental

                quality stands out as a policy guideline, both for the continued development and

                exploitation of the natural resources in the lake and basin, as well as the recog-

                nition of the potential economic benefits of environmental preservation. As the

                years pass and areas of such high environmental quality become more scarce -- as is

                rapidly becoming the case -- it nay, indeed, be that the economic justification for

                preservation of enviromrental quality will be increasingly powerful.

                      In the Lake Erie Basin, 11ichigan's shoriline from the Ifichigan-Ohio state

                line northward is relatively committed to Private and industrial development

                alonn, western Lake Erie, including the waterfront industries of the Detroit River,

                the private estates of Lake St. Clair, and the Private developments of the St. Clair

                River, In public ownership along the !@-ichigan shoreline are some 40 miles of wild-

                life areas in the marshes along Lakes Erie and St. Clair (and Saginaw Bay in Lake
                                                                                 a
                Huron), and another 15 miles of parks -- 10 of which are in the Detroit area.  I

                      Over half of the United States shore of Lake Erie lies in Ohio, which --
                                                                            2
                including islands and Sandusky Bay -- amounts to 321 miles:

                      There are four main islands in American waters: Kelly's Island, South Bass,
                      'Middle Bass, and North Bass Islands. Agriculture, fishing and tourism are
                      their principal economic stays. An island vacation has great appeal, and
                      state parks of sufficient size stressing camping as a primary feature could
                      be expected to receive considerable visitation.

                      From the vicinity of Vermilion to the Pennsylvania line is the shore bluff
                      sector. This segment of Lake Erie com9ares with the most heavily developed
                      shores on the Great Lakes. A vast complex of marinas, private beaches, exclu-
                      sive developments, and industrial operations crowd to the edge of the eroding
                      bluffs. Since the natural scene has long been altered, since development is
                      essentially complete, little possibility exists of obtainin,c, natural frontage
                      for public recreation along this section.
                1Remaining Shoreline Opportunities, op. cit., p. 139

                2 Ibid., p. 150

                                                                                           111-131
                       One of the outstanding recreation features in Lake Erie is found at Presque
      40         Isle State Park in Pennsylvania. Presque Isle is a 7.3 mile spit which sweeps
                 out from Pennsylvania's 51-mile shoreline and serves as a good example of multiple

                 use of beaches, marina, wildlife, and navigation successfully functioning together.

                 The Army Corps of EnSineers completed a large beach restoration project along the

                 seaward side of the spit; and a multimillion dollar Park improvement program is now
                                                                                    1
                 under way to provide much needed facilities for Public recreation.    This area is

                 situated so that little algal pollution is felt, although its rate of use has

                 been hurt by the adverse image of Lake Erie pollution.

                      New York's 77 miles of Lake Erie shoreline has been developed to such an

                 extent as to nearly preclude further possibilities for recreation access beyond
                 the two state parks (including the one at Niagara Falls).2 Deficiencies in recrea-

                 tion access may be met along the Uew York shoreline by increasing new land through

                 filling as discussed in an earlier section, particularly around the Buffalo area.

                      The shoreline of Lake Erie and Lake St. Clair is more intensely developed

                 than any other shoreline of the Great Lakes. The population of over 10 million in
                 the Lake Erie Basin is expected to double in the next 50 years. 3 Present demand

                 for water-oriented outdoor recreation in the Lake Erie Basin exceeds 245 million

                 activity days annually. Of.this, M" million activity days are for water-dependent-

                 activities, 70 million of which occur during the sunnermonths. Demand is ex-

                 pected to triple by the year'2000. Of the basin land area (which is several times

                 t7ider than the narrow coastal zone margin) less than 2% is devoted to Public

                 recreation. This is estimated to be half of the developed public acrea,--e needed to

                 meet present demand for outdoor recreation. Information is not available to disceri

                 the extent to which private recreation development is serving to fill this gan.

                 While 15% of public ownersain of. the, shoreline is considered optimum for satis-
                 factory public recreation needs,A less than 10% of the Lake Erie shoreline has

                 T-Ibid-9 T). 169
                 2 Ibid., p. 175
                 3 Water Oriented Outdoor Recreation - Lake Erie Basin,, op. cit., pp. 2-1 to 2-2
                 4 Remainin_g Shoreline OpRortunities. op. cit... p. 175

                                                                                                   -132
                                      4
                 veen   acquired for public recreation  use.'@' The U. S. portion of the Lake   Erie shore
                                                                                             activities.
                 has only a few good sand   beaches and adequate natural harbors for water-dependent/
                 The basin lacks inland lakes suitable for water-oriented
                 /outdoor recreation activities; and, most tuportantly, day-use, water-oriented

                 recreational facilities around the largem.etro-politan areas are critically lacking.

                 The report Water Oriented Outdoor Recreation -- Lake Erie Basin -- which is

                 referred to frequently throughout this section -- makes the following conclusions
                 w-ith respect to recreation use of Lake Erie:   2

                        (1) By the year 2000, recreation demands in the Basin will more than ftipld
                        for most activities.

                        (2) The United States portion of the Lake Erie shore has few good sand
                        beaches and adequate natural harbors for water-dependent activities.

                        (3) The Basin lacks inland lakes suitable for water-oriented outdoor recrea-
                        tion activities. Presently, there is less than one-hundredth of an acre of
                        inland lake water per Basin inhabitant.

                        (4) Day use water-oriented recreational facilities which serve the SMSA
                        (Staneard Metropolitan Statistical Area) counties of'the Basin are critically
                        lacking.

                        (5) Relating expansion of existing facilities and creation of new areas to
                        projected demands, it appears probable that shortages of recreation areas
                        will continue to cyrow. tumong the paramount factors causing the present
                        situation are: (a) poor water quality in and adjacent to the metropolitan
                        centers of the Basin, (b) lack of public access to water for recreational use,
                        and (c)inadequate funds to plan, acquire, and develop needed facilities.

                        (6) Industrial and domestic pollutants have contaminated portions of Lake
                        Erie and several rivers within the Basin to tbe extent that their recreational
                        value has been impaired. Local adverse water quality has (1) inhibited use
                        of many developed recreation areas, (2) resulted in abandonment of recreation
                        developments, and (3) discouraged development of new recreation units.

                        (7) In some instances, recreationists who have year-around homes, which were
                        formerly used as summer cottages, along the shores of water bodies in the
                        Basin contribute to water quality deterioration through overloading sanitatior
                        facilities. In addition, litter scattered around recreational areas has
                        weakened the aesthetic quality of many sites.

                        (3) The greatest natural resource asset of the Basin fror.,i a recreational
                        standpoint is Lake Erie and its adjacent shoreline. Less than ten percent of
                        the Lake shoreline has been acauired for all types of public recreational use.

                   T-later-Oriented Outdoor Recreation - Lake Erie -jasi               p. 3
                                                                         n. op. cit

                 2
                    Ibid.

                                                                                              111-133
                       At a recent conference held on the problems of the Great Lakes, the following

                 statentent was made whicl, fairly vell describes the popular irilige of the problems
                 of recreation use of the Great Lakes and, particularly, Lake Erie:l

                       Recreation -- although low in legal priority, many of the 25 million people
                       in the Great Lakes Basin enjoy the recreational advantages of living adjacent
                       to this great resource. Th@ aesthetic value obtained from the mere ability
                       to sit and contemplate the Lakes has, fortunately, not been lost. The beaches
                       of Lakes Ontario, Erie, and lower Michigan have been made unsafe by pollution,
                       as evidenced by bacterial counts, and unappealing through algae growth.
                       Erosion has caused the loss of further shore bathino, facilities and has
                       restricted the use of shore-based boats in Trmny areas. Water level variation
                       has caused further loss of beaches and recreation facilities. Other interests
                       however, such as Power, navigation, and fishing have not provided any serious
                       restriction to recreational appeal; indeed, they have often improved it.
                       Pollution threatens to end it.

                       Water pollution, indeed, has been a major problem impairing recreation use

                 of the shoreline and waters of Lake Erie, with the exceptions of the lakeward

                 beaches of Presque Isle State Park in Pennsylvania and Cedar Point, and East Harbor
                 and Crane Creek beaches of Ohio.  2  On the field trip conducted by the NPA Great

                 Lakes Study staff, many recreation beaches were visited that were cluttered with

                 dead fish or covered with decay4ng algae from a few inches to several feet in depth.

                 However, there were also beaches encountered that had practically no traces of

                 algae and whose waters were crystal clear. A representative of the Erie, Pennsyl-

                 vania Chamber of Commerce complained that the publicity shouting of Lake Erie

                 pollution was out of proportion and was not true of conditions around Presque Isle

                 State Park and many other locations. Subsequent inspection of that State Parks

                 beaches verified the Chamber representative's concern (however, beach erosion was

                 still a critical  probleri). The municipal beach at Hamburg, New York utilized a

                 paddle wheel device to generate a lateral current to wash toward shore algae that

                 had accumulated durin.- the night. A tractor-dravm rake then culled it from the

                 lake. Another state park with lesser overnight accurulation of algae simply had

                 the lifeguards turn out early with rakes and a wheelbarrow! and with an hour or so

                 1
                   Clevenger, R. F. and MacLaren, J. W., "New Requirements In Water Resources Plannir
                   On the Great Lakes," Proceedin,!?-s of the Great Lakes Water Resources Conference,
                   Toronto, Canada, June 24-26, 1968. (American Society of Civil Engineers and the
                   Engineering Institute of Canada), p. 375
                     0
                   Water-Driented Outdoor Recreation -- Lake.Erie Basi , o1?,.c;Lt    T). 2-1.

                                                                                            111-134
                 of effort, the swimming area was cleaned of a relatively small amount of green

                 algae deposited during the night. Geneva-on-the-Lake, a resort area between Erie

                 and Cleveland, was reported to have experienced a 40% decrease in tourist trade

                 in the last few seasons "due to the Pollution." Inspection of the beaches in this

                 area did not reveal excessive accumulation such as experienced in some of the worst

                 areas of Lake Erie. Upon further reflection on the resort community itself, it is

                 possible that recreation activity and tourist travel patterns have changed so that

                 a resort community once popular in the 1940's and 50's no longer attracts peak

                                             -ions are less modern or appealing, among other reasons.
                 loads because its accommodat

                 Although our field inspection around the south shore of Lake Erie,cl-emonstrated the

                 severity of pollution effects on recreation areas, it was also evident that the

                 natural circulation waste discharge locations and other ecological conditions affect

                 the concentration of algae and other pollutants from one place to another. The

                 paddle wheel device at Hamburg suggests that artificial structures or devices could

                 be introduced to help clear recreation shoreline frontage by utilizing natural cur-

                 rent forces or harvesting apparatus. Other specific kinds of Pollution, such as

                 excess bacteria counts prohibitina swimming, will need to be controlled at th&ir

                 sources.

                       A broad analysis of the influence of poor water quality on the single acti-

                 vity, of swimming was made by the Bureau of Outdoor Recreation to indicate the
                 value that Pollution control would have on recreation. Table @@indicates that

                 control of pollution in presently affected areas would increase swimming by 6 milli

                 activity days annually. Since future demand for swimming will multiply signifif-

                 cantly, it is evident that inproved water quality in the Lake Erie Basin is most

                 important to public enjoyment of this recreation activity. "If the water quality

                 of the lake and its tributaries were improved, public agencies would be more Drone

                 to consider additional beach development. As an example, the city of Toledo with
                 more than 300,000 people is adjacent to the shores of-Lake Erie and has no public

                 swimming facilities along the shore. There.is little inclination to provide swim-

                 ming facilities under present water quality conditions. Under suitable water

                                                                                             111-135
                 quality conditions, public pressure could very well cause such facilities to be

                 p;ovided. The Cleveland Regional Planning Commission estimates thr four country

                 areas of Cuyahoga, Lorain, Lake and Geauga will   need 81 additional acres of beach

                 by 1970. Emphasis could be placed on acquisition along the Lake Erie shore if
                 water quality were improved to permit myimming in areas acc1uired. 1

                       In some instances, recreationists who have year-around homes, which were

                 formerly used as summer cottages along the shores of water bodies in the basin,

                 contribute to water quality deterioration through overloadina sanitation facilities.

                 In addition, litter scattered around recreational areas has weakened the aesthetic

                 quality of many sites; and sanitation waste from recreation boating has contributed

                 significantly to the pollution problem in areas of heavy use.

                       The implerientation of water quality standards adopted by the states in the

                 Lake Erie Basin will contribute significantly to enhancing,, recreation use of the

                 shoreline and waters. The restoration of the major tributaries of the lake and

                 certain near-shore areas through dredging polluted bottom sediments may also serve
                                                           2
                                                     TABLE
                 ESTIMATED INFLUENCE OF WATER QUALITY ON SWIDE11ING ACTIVITY AT PU:-3LIC BEACHES
                                                 LAKE ERIE BASIN
                 Estimated Swimming activity at public beaches (1963)             $16,455,000
                 Estimated swimming activity atpublic beaches which frequently
                 exhibit poor water quality and should be closed (1963)                730,000
                 Estimated swimming activities without water quality in@jprovement 15,675,000
                                  r_'
                 Increase in swimaing activity.with improved water quality
                 Reopening of closed beaches                                       1,325,000
                 Inc@eased Participation by present patrons                        2,640,000
                 Increased attendance participation
                 Total increase                                                   _=,625 000
                                                                                   6,590,000
                 Estimated swimming activity with improved water quality          _L3.@045 n@OO
                 Annual loss i-Athout improved conditions & with enforcement       7,370,000

                 lh!L' P. 9-9
                 2
                 Water-Oriented Out_4oor Recreation - Lake Erie Basin, pp. '14, p. 9_q.

                to restore recreation areas that have been abandoned. Further research needs to

                be directed toward developing water quality criteria for public health standards

                in recreation use of lake waters, particularly for swimming and other water sport

                activities. Such a research program was initiated at the FtJPCA Water Quality

                Laboratory at Duluth and could be further supported.

                     Various kinds of shoreline modifications and structures could be introduced

                to enhance recreation use of the shoreline. These include the use of land fills

                and excavation techniques described in an earlier section, particularly with res-

                pect to "stretching@' the shoreline in the critically deficient day-use zone near

                metropolitan areas. Such deficiencies could also be met for recreation purposes

                by acquiring new lands away from urban centers and by rehabilitating urban water-

                fronts. With respect to the latter, a variety of new kinds of bank shapes, erosion

                protection structures, and materials may be explored to develop attractive and

                efficient designs of waterfront architecture to enhance recreation use and aesthetic

                quality. The Governor of New York as part of a recreation land plan proposed to

                increase state and local efforts to provide free or low-cost transportation from
                urban poverty areas to recreation areas through appropriate federal support. 1  As

                many large cities along the Lake Erie shore, such as Buffalo and Detroit, have had

                ,p-p@purchase shoreline recreation access further away from the central city water-

                front, this proDosal has merit in providing recreation opportunity for the increa-

                sing proportion of economically disadvantaged citizens in the core areas of larger

                cities.

                     Preservation of the overall Great Lakes Basin environment is to be studied

                by the National Part- Service in the Great Lakes Basin Commission's Comprehensive

                Fra-mework Study. NPS is conducting an "Environmental Study of the Aesthetic and

                Cultural Values of the Great Lakes Basin" to obtain an'evaluation of the total en-

                vironment within the study area and.to -provide a broad-scale analysis of the factors

                that affect the aesthetic qualities and cultural values, isolating definite pro-

                blems as they relate to the river basin study and identifying resource potentials of

                I
                 "New York Governor Proposes Recreation Land Plan," Parks and Recreation, Septem-
                ber 1968, p. 11

                                                                                             111-137
                 an aesthetic or cultural nature. Hopefully, this study will provide policy guide-

                 lines to direct R&D to the en-incering aspects o-r
                                               U                     environmental quality, such as

                 architectural design considerations for shoreline modification and protection

                 structures.

                       The importance of preserving the scenic and aesthetic quality of the coastal

                 zone to enhance the tourist industry can be     seen in the startling difference

                 between Niagara Falls, New Yorl- and Niagara Falls, Ontario. "Ringing the clean

                 but unimpressive state park in the American city is a downtown of unsightly two

                 and three story buildings and honky-tonk souvenir shops. But once across the

                 Rainbow Bridge, which connects the two countries, tourists find themselves in a

                 setting of beautifully shrubbed and multicolored gardens and trees, several obser-
                 vation towers, good restaurants, and two large hotels overlooking the falls."i

                 Niagara Falls, Few York is now striving to redevelop its city into a more attrac-

                 tive and effective tourist-oriented service and commercial center, recognizing

                 tourism as a valuable industry rather than a nuisance.

                       As part of the IJC's Great Lakes I-later Levels Board shore property investi-

                 gation, the Bureau of Outdoor Recreatio-a is conducting art investigation to measure

                 the effects of change on beaches resulting from regulation of water levels. The

                 study will measure present-day user capability of the beach shore zone for swimming

                 and the change in capability -- quantitatively and qualitatively -- associated with

                 the lowering of water levels due to regulation during the summer recreation seaso%
                 o7hich
                 /are the two basic benefits of regulation.

                      There are over one million registered boats in the Great Lakes statepand

                 twenty-eight percent of the population in the Great Lakes -,Region participated in

                 boating on one or more occasions annually. This level of boating interest is on a

                 par with the New England Region, which is highest in the Nation. There are certain

                 measures that can be taken to increase boating activity and enjoyment and, at the

                 same time, still increase the recreation boating base. The problems of squalls

                 I'Luring the Tourist to the American Side," Business Week, I-lov. 9, 1968, p. 133

                                                                                           111-133
                quickly rising and rapid fog developing which tend to restrict boating close to

                shore or near to harbors could be reduced by the availability of the sevel@dl new

                FN emergency frequencies established recently by the Federal Communications Commis-

                sion to handle distress signals and to monitor weather forecasting and other in-
                formation. 1  Combined with the development and marketing of low-cost radio equip-

                ment for small craft and the provision of better navigation aids, such as the new

                Corps of Engineers Lake Survey District Recreation Boating Map for western Lake

                Erie and better weather forecasting during the summer recreation boating season,

                these efforts would encourage wider use of small craft use. Additionally, the

                provision of harbors of refuge--especially along the shoreline of Lake Superior--

                as discussed in the section on "I'lodifications of the Shoreline," would encourage

                recreation boating activity.

                      While there is a large demand for slip rentals -- and in some areas near the
                metropolitan
                          /shoreline, the provision of additional marina facilities per se does

                not necessarily induce increased boating activity. Marine operators are primarily

                concerned with servicing resident boaters, particularly larger craft; and, there-

                fore, transient small craft services are not adequately provided. There is need

                for a greater number of widespread public boat landing rarps as a function of

                access to the shoreline and waters of Lake Erie. The public ramps at Buffalo and

                Barcelona are examples of the kind of facilities needed. From an institutional

                standpoint, coordination of state, local, and federal safety and navigation, re-

                gistration and taxing laws and requirements would benefit recreation boaters.

                Additionally, participation rates in recreation boating are highest in the skilled

                and semi-skilled workers in the many manufacturing and industrial centers around

                Lake Erie and Lake Superior. The changing of vacation patterns in industry could

                have significant impact on the number and frequency of boating occasions -- as well

                as other recreation activities in the lakes which are subject to congestion during

                peak periods, such as beaches.

                  Humphrey, Richard, "VHF-FM Begins to be Felt in Marine Radio," National
                  Fisherman, October 1968, p. 21-A and 31-A.

                                                                                                111-139

                       The coho salmon stocking program has not been as successful in Lake Superior
                 as it has been in Lake 11"cl-A-an.I   Initial plantings were made in the turbulence

                 of these two lakes during the Spring of 1966. 1-rhile the coho salmon thrives in

                 Lake Superior and is stimulating increasing sport fishing activity, these fish are

                 smaller than those in Lake Mich-igan; and the perc   entage surviving from the 1966

                 planting -vras substantially lower. This is primarily because alewives, upon which

                 coho largely feed, have not attained the abudance in Lake Superior as they have in

                 Lake Michigan. The success of coho or other species of salmon surviving under the

                 conditions of accelerated eutrophication in Lake Erie is still largely unknown.

                 In 1966, a "few" fingerlings (20,000) were released in Lake Erie and have been

                 reportedly appearing in commerical fishing nets up to 5 pounds in size. 'Other

                 encouraging indications for developin.- a coho sport salmon fishery in Lake Erie are

                 due to the results of experimental stocking in early 1968 of 6,000. cohos that are lf

                 months old and 5-6 inches long in Cattaraugue Creek, a New York tributary to Lake
                 Erie.2  Indications of the success of this experiment were found by the,return of

                 some of the early maturing males in the fall of 1968 (a year earlier,than normal).

                 However, some o1c the early returning cohos have been killed by apparently high

                 water temperatures in the stream. Unless some measures can be developed to increase

                 flows in Cattaraugue Creek to decrease the warm daytime termperatures, it appears

                 that only the fish which run at night with lower water temperatures -uill survive

                 their upstream migration in Lake Erie tributaries. Through R&D in selective breed-

                 ing, it is possible that a species may be developed to survive in the warmer water

                 temperatures.

                      The possibility of establishing a coho salmon fishery has Tnet with mixed

                 emotions. On the one hand, the potential development of a sport fishery would Offer

                 both increased recreation opportunity and economic vaiLue. On the other hand, com-

                 mercial fishermen are concerned over the possibility that the predator coho will
                 1"Lake Michigan; Salmon Help to Redress the Balance," Science,     .August 9, 1968,pp. 55-
                 555.
                 2
                  New York Hopeful as Cohos Survive in Lakes,z' Fational FisherTm!an, Uovenber 1968, p.

                                                                                          111-140
                further deplete the commercial lake perch fishery and the alewife and trash fish

                populations upon which a fish meal industry may develop. Both the commertial sport

                fishing values will have to be carefully weighed to determine the short and long-ran@,

                economic advantage between these two uses of the fishery potential of Lake Erie.

                The recreation values, expressed either in terms of economic value or political

                preference of the population within the basin, may still be the overriding factor

                in choosing between these two uses. Additionally, the latter choice may be made

                upon information and considerations beyond the scientific scope of the fisheries

                biologist which further demonstrates the interdisciplinary nature of the decision-

                making process for optimum resource utilization.

                      The overall approach to enhancing recreation use of the coastal zone involves

                measures both to increase the quantity of shoreline for providing access to the

                lakes and along the shoreline for recreation activity, and to maintain and enhance--

                and, in certain cases, res't,ore-- the quality of the shoreline and water environ-

                ment for recreation. Various recreation planning studies have been, and are cur-

                rentl Y) under way which include the study of multiple use of lands and waters;

                resource inventories to determine priority areas for acquisition, management needs,

                (e.g. shore protection) and use classification; and development and implementation

                of water quality standards for enhancing recreation use of shoreline and water

                resources. There are areas in which R&D could be conducted in conjunction with

                these planning efforts to find better ways of utilizing the shoreline and waters

                for recreation purposes. For instance, as discussed in the section on "Modification:

                of the Coastal Zone", R&D on the development of new land fill and excavation tech-

                niques could provide new possibilities for increasing or "stretching" the shoreline

                including ways to utilize various solid waste materials in land fills. The develop-

                ment of new engineering techniques and development standards could enhance

                multipurpose use of shoreline and harbors. For instance, new shapes in shoreline

                bank and wharf configuration could be designed to facilitate recreation use during

                say, slack shipping periods. Along with pollution abatement and restoration program:

                                                                                                     a

                combined landscape and. engineering design studies could$dA               III@-141
                                                                          _@elop new approaches
                for integrating fish and wildlife habitat within urban waterfront areas.

                      One Particularly important vehicle for coordinating shoreline recreation

                use around the Lake Erie and Superior Basins is available throu'gh the procedures

                of the Federal Land and Water Conservation Fund Program administered by the

                Bureau of Outdoor Recreation. The L&WCF Program provides funds for planning,

                acquisition, and development of outdoor recreation areas and facilities. An eligi-

                bility requirement for applications for state and local projects is that they be

                related to or coordinated with a state recreation planiw@hich, in turn, should be

                coordinated with the comprehensive planning program for the respective state. The

                recreation element of the Great Lakes Basin Commission's comprehensive framework

                study could provide the basis for identifying regional recreation needs and defi-

                ciences Eys well as develoD the standards and policies for assessing the regional

                significance of projects proposed in a local area -- and which should ;thereby)

                receive regional endorsement for priority consi@_Ieration, such as in the area of

                acquisition needs. Such regional endorsement coull be a consideration in Land and

                14ater Conservation Fund Project review.

                      The following recommendations are made to enhance the optimum use of recreatio-

                resources in the coastal zone of Lakes Erie and Superior:

                      (1) It is recommended that the appropriate regional planning agency for the

                      lake basins identify priority areas of shoreline access and other water-

                      oriented recreation deficiencies as a basis for determininp-, cost-effectiveness
                       and
                         koordinating the allocation of federal contributions for acquisition and

                      the develo-oment of recreation areas and facilities to the greatest benefit

                      to the region.

                      (2) It is recommended that priorit,@;, consideration be given to conducting

                      R&D in development techniques for increasing shoreline access in urban areas

                      for recreational uses through:

                           (a) Use of land fills and excavation.

                           (b) Rehabilitation of urban waterfronts from derelict comneriial and

                                industrial uses to recreation use.

                                                                                          Tir-142
                       (3) It is recommended that R&D be conducted to develop improved marine and

                       wildlife species, management techniques, and use regulations to enable the

                       establishment of natural fish and wildlife areas within urban reaches of the

                       shoreline on a multiple-use base. It is further recommended that the Bureau

                       of SDort Fisheries and V7ildlife be given lead responsibility for this recom-

                       mendation, in cooperation with state and local governmental agencies and

                       the Department of 1-71ousing and Urban Development.

                       (4) It'is recomnended that R&D be conducted in developing engineering designs

                       for shore protection structures, piers and wharves, and other waterfront and

                       lake bank management methods that are aesthetically attractive and will serve

                       to enhance the quality of the urban shoreline environment. It is further

                       reco-zmended that the Council maintain lead responsibility in this recommen-

                       dation and cooperate with the U. S. Army Corps of Engineers and the Depart-

                       ment of Housing and Urban Development.

                       (5) It is recommended that the Recreation Craft Series nautical charts

                       published by the Lake Survey District be extended to the entire shorelines

                       of Lake Erie and Lake Superior and include such shoreline recreation facili-

                       ties as state and local parks and other significant public water-oriented

                       recreation features of interest to the recreation boater.

                       (6) It is recommended that priority consideration be giver, to providing

                       assistance to states and local government in carrying out pollution abatement

                       restoration programs in the proximity of water-oriented shoreline recreation

                       areas. It is also recomended that emphasis be Aven to R&D for developing

                       waste management systems that are compatible with or enhance recreation use

                       of the shoreline, such as the use of solid waste materials to develop re-

                       creation-oriented land fill projects or the use of thermal effluents to

                       warm swimming waters.

                                                                                         111-143

                      (7) It is recommended that the preservation of the quality of the environ-

                          ment of the shoreline and waters of Lake Superior be given priority

                          consideration in the formulation and implementat4on of water quality

                          standards, zoning regulations for tie use of the shoreline and waters,

                          and policies for the management of the resources of the narrow coastal

                          zone of the Lakle Superior Basin.

                                                                                         111-144

                   Commercial fisheries -- While progress is being made in sea lamprey and

                alewife control as well as pollution abatement and introduction of coho salmon

                in Lakes Erie and Superior as discussed in the water quality control and

                recreation sections, the interests of sport and commercial fishing -- or the

                taking of fish for human comsumption or for fish meal production -- must be

                reconciled on an "institutional" basis. Additionally, R&D would be useful to

                develop plant or animal species that would flourish in the over-enriched Lake

                Erie, or'in controlled areas, combining nutrient inputs and waste heat from

                power plants. For example, a new warm water bass fishery, unique to the region,

                has developed in the relatively small harbor at Dunkirk, New York due to the

                raising of water temperature from the heated effluent from an adjacent thermal

                power plant. The harbcr has become popular with fishermen, especially since the

                area is open all year round. Also, boats can be kep-t in the water all year. Such

                a situation could also work to utilize waste products as well as produce an

                economic commodity in the form of year-round fish culture (i.e. for a aource of

                animal protein) or large-scale hatchery. The R&D*.needs in the rehabilitation of

                the commercial fishing activity in Lake Erie - or in certain cases, in either

                Lake Erie or Lake Superior -- or the establishment of new commercial fisheries

                may be summarized as follows:

                   @ R&D on measures to preserve and improve quality of fishery breeding grounds;

                   a Reseurc� on breeding fish for fast growth and other desired characteristics;

                   e R&D on fish-hatchery design and low-cost fish food;

                   9 R&D on measures to protect fish eggs and fingerlings from predators,?

                   @ Control of sea lampreys and other fish parasites;

                   0 Provision of natural or artificial weed havens and other havens for fish;

                                                                                          111-145

                    a R&D on ecological effects of introductng new fish species to lake;

                    * R&D on measures to reduce or eliminate undesirable fish from lakes or rivers;
                      including (a). Selective control of breeding grounds to purge undesirable
                      fish or destroy eggs; (b). Sterlilization and / or poisoning of selected
                      species; (c). R&D on processing trash fish for fish meal or fish protein
                      concentrate;

                    * R&D on techniques of measuring fish popfilations and maximum sustainable
                      yields, or prediction of hatch and survival rates of fingerlings due to
                      adverse weather during critical periods of early life;

                    * Conservation measures and fishery management practices including Canadian-
                      American agreements;

                    * R&D on fish-locating, catching, processing, and marketing technologies;

                    * R&D on the design, establishment, and management of a large-scale systematic
                      fish-farming program for the entirity of Lake Erie or Lake Superior; and

                    * Search and rescue services, nalrigation aids, mapping, weather monitoring
                      and forecasting, port and harbor facilities for commercial fishing operations.

                    Mineral resources -- The recent discovery of potential oil and gas resources

                 under the bed of Lake Erie and manganese nodules in the northern portion of Lake
                         1
                 Michigan has triggered attention to the possibility of increasing drilling

                 and mining activities in the Great Lakes. Present c   ontroilersies over pollution

                 arising from dredging and'excavation operations in the Great Lakes, and notoriety

                 from arguments over pollution and navigation hazards and scenic pollution from

                 off-shore drilling rigs along the Southern California and Gulf Coast States

                 (pointed to by local Lake Erie conservationists, among others) have stirred

                 considerable reluctance on the part of state regulatory agencies to allow or

                 encourage private companies to go in and develop these resources. The strengthening

                 of R&D in (1) developing regulations for drilling and mining operations and

                 reconciliation of these activities with other uses of the coastal zone, and (2)

                 acquiring the data and information, and production 1-1-echnologies to substantiate

                 Rossman, R. and Chandler, E.,  "Manganese Nodules in Lake Michigan,"    Science
                 Vol. 162, I)ecember..6,. 1962, pp. 1123-1124.

                                                                                             111-146

                  commercial exploitation of these resources would contribute to overcoming the

                  risk and uncertainty associated with these activities, particularly those offshore.

                  Of priority importance in this regard is R&D in exploration and development

                  technologies for oil and gas and other mineral resources under the Great Lakes

                  and along the shoreline; competitive technologies for mining, beneficiating,

                  and refining of ores presently of marginal or submarginal quality in or adjacent

                  to the coastal zone; forecasts of mineral resouvce developments in the coastal

                  zone or requiring transport in the coastal zone; and development of measures and

                  methods to control pollution and navigation haaards and aesthetic degradation to

                  the coastal environment from offshore drilling and mining and oil spills.

                     Agriculture and forestry -- Conflicts in urban and agricultural use of    the

                  coastal zone increase steadily with the expansion of urban and industrial     uses

                  displacing agricultural land. This is particularly true in the intensive veg-

                  etable and fruit producing areas located near urban market centers    around Lake

                  Erie. Urbanization produces other prob&ems resulting in a reduction of agricultural

                  acreage or crop damage -- such as air pollution, erosion caused by excess runoff

                  due to a natural growth cover being replaced by asphalt streets and composition

                  roofs, pilferage and vandalism of crops, increasing property taxes, and inter-

                  ruption of efficient crop management patterns by lea -froggi g and scattering
                                                                        P       n

                  urban expansion. On the other hand, efforts to intensify agricultural production

                  through the use of fertilizers, herbicides, and pesticides have caused considerable

                  problems in pollution of urban water supplies and damage to the natural ecology of

                  the coastal zone.

                     Of particular.importante to the coastal zone are the soil-- which, due to

                  combined unique nutrient characteristics and coastal. climatic conditions, produce

                                                                                     -111-147

                speciality crops such as certain varieties of fruits and wine grapes. Such

                crops are virtually assured of steadily increasing markets in the future because

                of the great difftculty in reproducing these varieties anywhere else. Consequently,

                these areas should be preserved, both for the benefit of maintaining the economic

                and food value of their production, and for the additional social and aesthetic

                value. These lands lend variety and attractiveness to the landscape of the

                coastal zone. Agricultural lands, as an element of open-space planning, have

                additional usefulness of providing space for dilution of airborne waste materials

                -- in a sense, a&*"aitshed," and for buffer areas preserving community iden-

                tification, shaping urban expansion, and segragating conflicting uses.

                  The priority R& D needs for effectively utilizing the agricultural and

                forestry resources of the coastal zone include R& D on increasing agricultural

                and forestry productivities or crops or species suitable to the coastal zone;

                forecasts of ggricultural and forestry yields in the coastal zone or requiring

                transport in the coastal zone; and research on determining the soil climate

                characteristic unique to the coastal environment, including R& D to develop

                methods to preserve and enhance the utilization of these lands, in terms of

                agricultural production and other benefits which may be derived from open space

                land, and agricultural practices which will not have detrimental effect on the

                coastal zone environment, particularly with respect to water run off causing

                soil erosion and deposition, and carrying fertilizer and pesticide residues and

                livestock run off wastes to the lakes.

                  Industrial development -- Marine science and technology is involved in the

                industrial growth and development of the coastal zone in two main ways. First

                there is the science and technology required to develop rationally those marine

                                                                                       111-148

                 resources upon which industry may develop. This includes the development of

                 new or improved technologies necessary to utilize the Great Lakes more effectively

                 as a transport artery, a recreation resource, a power resource, and as a source

                 for raw materials -- water, fisheries and minerals. Second, and as discussed
                 in Part I, a related technology must be developed to oppose the forces impinging
                 on the.quality and quantity of this industrial base resulting from (1) the by-
                 products of waste from the industrial process itself, and (2) the imbalance of
                 the resource base due to excessive competition for a single purpose use, such as
                 witnessed in the problems presently associated with the industrial use of fresh

                 water supplies.

                   Priority needs for, R&D toenhance the resource base and growth potential for
                 industry in the coastal zone may include R6D on measures to develop or intro-

               duce the most efficient marine-related manufacturing or processing technologies

               to the coastal zone;requirements for zoning of industrial land use or other

               regulatory measures to control possible adverse impacts of industrial development

               on other priority uses of the coastal zone; criteria for assessing priorities

               allocating marine-orientated resources between various industrial sectors, and

               between industrial and non-industrial uses.

                  Ukban development -- Marine science and technology has an important role

               in the urban process within the coastal zone. The'large cities located on the

               shoreline of Lake Erie, including Detroit (on the Detroit River), clearly

               demonstrate how the physical characteristics of the shoreline and the availability

               of, and access to, the Lake's waters have influenced the pattern and activity of

               the urban environment. Furthermore, the urban waterfront presents a dramatic

               .cross section of the technical, physical economic and social problems that confrobt

               virtually every major American city today. The marine scientist and engineer,

                                                                                        111-149

                working in any discipline and standing at the waterfront of any city around

                Lake Erie can readily see water pollution, urban blight, derelict wharfage

                structures -- and for a brief period during the summer of 1968 -- the flames

                from burning buildings ignited over growing social turmoil. It may well be that

                it is within the context of the urban environment that marine science and tech-

                nology can contribute most to solving the problems of the coastal zone, in terms

                of both developing solutions to existing problems, and inintroducing the role

                of marine science and technology to the urban (comprehensive) planning and

                decision-making process of coastal cities. It is also in the urban portions of

                the coast zones of Lake Erie and Lake Superior that the multiple use of the

                resources of the coastal zone is in most demand, while at the same time come into

                greatest conflict.

                   To contribute to the development of remedial programs to solve the above

                problems and enhance the optimum use of urban water fronts, it is recommended

                that the Marine Science Council, in cooperation with other concerned agencies

                -- such as the Department of Housing and Urban Development, and the Water Resources

                Council -- support a broader range of studies to identify the role of, and needs

                for, marine science and technology in the conduct of comprehensive urban planning

                programs of federal, state, regional and local governments. These studies should

                include integration of the coastal zone as a geographic or functional unit of

                the comprehensive planning process and seek to identify and pursue specific

                scientific and engineering R&D to expand the alternatives available for solving

                urban waterfront problems including (a) waterfront land use and redevelopment

                stressing water-orientated activities; (b) physical design or construction

                standards and code modifications for shoreline and offshore facilities, and (c)

                                                                                         111-150

                 measures to develop intensive residential, commercial or recreation iacilities

                 in coastal urban areas -- including the provision of areas of natural plant

                 and animal life within the urban waterfront. Also of basic importance in these

                 studies is the determination of the physical and ecological limits of coastal

                 zone resources to accomodate and support urban uses. These studies would include

                 development of guidelines on population saturation densities to protect resources,

                 and the development of alternative approaches to encouraging selective dispersion

                 of population and urban development into sparsely populated areas of the coastal

                 zone or hinterland to relieve pressures upon presently overstressed natural

                 resources in the coastal strip.

                   Power development -- The waters of Lake Brie and Lake Superior and their.

                 tributaries provide the basis for development of power resources by providing

                 a source of: (1) hydraulic power to run generators, and (2) fresh water-for

                 steam and cooling systems in tberinal power plants. The major problem in the

                 use of Lake Erie as a source of hydraulic power generation stems from the need

                 to maintain lake levels sufficiently high to sustain minimum flows. In the

                 multiple use of lake waters, the regulation of lake levels to meet variations in

                 power demand is sometimes in conflict with other uses. For instance, increased

                 outflow for power generation purposes during periods of low lake levels would

                 increase navigation and shipping costs, or the restricting of outflow during

                 low demand periods and high lake 'Levels increases or prolongs flood and

                 property damage hazards.

                   The difficulty of maintaining normal levels in Lake Erie results from a

                 combination of factors. One is the wide ranges in rainfall and the need to store'.-tl

                 runoff waters in the lake due to the restricted discharge capacity of the

               Niagara River. This causes high levels during periods of excessive rainfall.

               Another factor is reflected in low levels occasioned by the unregulated inflow

               from Lake Huron through the St. Clair and Detroit Rivers during periods of

               low rainfall. Ice conditions during winter months also cause decreased flow through

               the Niagarp River. Thus, to sustain normal levels in the face of varying flow-

               through demands for power generation and. the desirAbility to sustain normal lake

               levels to compromise the variety of user interests in and around the lake, a

               system of regulatory structures and diversions is needed to "pull the plug"

               during excessively high levels, or to increase inflows during periods of low

               levels. The outlet of Lake Superior contains regulatory structures operated by

               the International Joint Commission to increase or   decrease outflow to maintain

               normal levels and flows between Lake Superior and Lake Michigan and Lake Huron.

               Beaause of the limited capacity (althoug-,h increased in recent years,) of the St.

               Clair and Detroit Rivers' channel, regulation of Lake Superior outflows has only

               limited and gradual effects on Lake Brie levels.

                  Other problems of hydroelectric generation are: (1) siltation of head ponds

               through soil erosion; (2) compensating navigational interests and shore property

               interests when creating a sufficient head of water at generating sites      (3) slime

               control difficulties with pollution (more applicable to thermal power plants). Other

               means to enhance the hydroelectric potential of Lakes Erie and Superior are to:

               (1) utilize diversions into the lakes from watersheds outside the basin, especially

               the Hudson Bay Drainage Basin, (2) develop tributary holding reservoirs, including

               hydroelecttic plants; and (3) increase generating capacity of existing power

               vlants since most of the prime sights have already been committed to use on Lake

               Erie. (However, some potential exists on the St. Marys River).

                MacLaren and Clevenger, op. cit., p. 373

                                                                                         111-152

                  Development of more efficient thermal power generation technology has

               increased the use of these plants throughout the coastal zone of Lake Erie and Lake

               Superior and has lessened reliance on hydroelectfric power sources. Thermal

               power plants largely use fossil fuels (coal) as an energy source, but nuclear

               plants are commercially competitive for large-scale units and are being

               constructed In the Great Lakes Region(Detroit and Upper Lake Michigan). Thermal

               plants require large amounts of cooling water and are usually located on the shore

               of a river, lake,or ocean. Problems associated with thermal power plants include:

               (1) excessive low lake levels may adversely affect fresh water intakes, (2) lake

               pollution causing clogging of water intakes and algal slime control problems, and

               (3) pollution from the power plants in the form of thermal affluent, potential

               source of nutrient input in fly-ash fills, and air pollution from suspended fly

               ash and "smoke".. Opportunities to enhance thermal power generation in the coastal

               zone include:

                 (1)   Use of an internal water circulation steam condensing and cooling water
                       system using more efficient cooling towers.

                 (2)   Use of solid waste disposal furnace systems as an energy source for
                       power generation ( as being currently considered for use at San
                       Francisco, California.1   0

                 (3)   Combin ing the development of thermal power generator plants with other
                       potentially compatible uses such as swimming, fishing, and boating activity-
                       associated with the warm. water outfalls of the power plants at Dunkirk,
                       New York, and Marquette, Michigan. While these cases may be pointed to
                       as a relatively successful integration of compatible uses, they were
                       largely by-products of single purpose commitments on the part of the
                       power plant location. The careful consideration of these appropriate
                       uses in the planning stage, including institutional arrangements
                       necessary to assume appropriate project costs allocated on the basis
                       of benefit derived from, for example, the total integrated power gen-
                       eration -- recreation system -- would greatly enhance the overall use-

                Air and Water News., July 29, 1968, p.7.

                                                                                     111-153

               fulness and benefits from the large investments in these utilities.

                  R&D relative to marine science and technology in developing the power

               resources of the coastal zone include the following:

                  0    Projections of power requirements to serve the Great Lakes Region
                       and other national and international power networks, including
                       breakdowns for Lake Erie and Lake Superior watersheds including
                       total requirements and t�pa of power source.

                  0    R&D on thermal.power plant design, construction, and financing require-
                       ments to develop measures to enable anO encourage integration with other
                       recreation, urban, and utility uses.

                  0    R&D on efficient power transmission techniques to enable more flexibility
                       in thermal power plant location away from urban power market concentrations.

                  0    R&D to lessen the impact of thermal power plants on the coastal envir-
                       onment for: (a) controlling airborne waste, (b) controlling temperatures
                       of water effluents (to either make warmer or cooler).

                  0    R&D on systems for controlling lake levels.

                  6    R&D on maintairdna winter flow-throughs of hydropower plants.

                  0    Research on ecological and marine biological effects of thermal pollution.
                                            I
                  Water resources management -- The increasingly competitive demands for use

               of Great Lakes waters generated by the region's economic and population growth

               places increased need to systematically manage the water resources of the lake
                                                     j     t@

               system rather than, say, Lake Erie or Lake Superior on an individual basis. In

               the broadest sense, management of the lake system involves measures to provide

               qualities and quantitits of resources for a variety of purposes. The purposes

               of water quality control were discussed ihn the first &ection of this working

               paper. This section is concerned primarily with the quantitative aspects of

               water management; that is, measures to manage the levels and flows of lake waters

               for the combined purposes of pollution control, navigation, flood control (including

               erosion and deposition), power generation, -water supply, recreation, and fish

                 This section is based in large part on Lea, op. cit..

                                                                                       111-154
      Is      and wildlife conservation.

                 The problems of levels and flows in the Great Lakes stems from two inter-

              related problems:(I) increasing pollution, and (2) fluctuating levels and flows.

              For instance, the recent (1965) draught conditions over the Great Lakes watershed

              resulted in near-rescued lows in levels and corresponding reduced flow through

              the lakes. These low levels and flows impaired values of navigation, power,

              and property at an estimated annual rate of $100 million and occurved just when the

              pollution problem was achieving near-critical proportions in Lake Erie. The gen-

              eral approach to solving the problems of both quality and quantity of water in the

              Great Lakes involves: (1) more intensive pollution abatement through better waste

              treatment, and (2) the manipulation of water by regulation of flows and/or di-

              versions to maintain normal lake levels and to dilute any carry away waste

              pollutants.

                 Figures in Part II indicate the general physical characteristics and levels

              of the lakes which vary depending on the climate the topography, and flow of

              water in the Great Lakes System. At the present time, the only engineering

              regulation of the system is at the outflow of Lake Superior and Lake Ontario. The

              manioulation of water levels and flows will involve: (1) the construction of

              major civil engineering structures, such as dams, locks, and the connecting

              and/or reversing of rivers; (2) the development and agreement on rational plans

              which demonstrate hydraulic practicality, benefits which outweigh costs,

              bureaucratic administrative arrangements, and political acceptance; (3) the multi-

              purposes of normal levels for pollution control, water supply, navigation, recre-

              tion, and fish and wildlife conservation, and (4) flexibility of flows to accom-

              modate flood control and power generation interests. Because of the basin-wide and

                                                                                      111-155

               Inter-basin scope of regulating levels and flows of waters into and through

               the Great Lakes system involving regions of the United States and Canada, the

               two governments in 1964 charged the International Joint Commission with

               studying the causes and fluctuations in levels and the practicality and benefits

               of changes in existing works or other measures.

                  R&D in, or. related to, marine science and technology needed in the further

               development of a system of water quantity management in the Great Lakes Basin

                  in particular, Lakes Erie and Superior -- are as follows:

                  *    Improved techniques of forecasting annually or seasonally Uvallable
                       water resources of,the Great Lakes Drainage Basin, including Improved
                       long-range weather and precipitation forecasts, Improved estimates
                       of evaporation losses; and improved estimates of soil retention of
                       water.

                  *    Hydrological and engineering studies bearing on the practicality of
                       diverting waters from the Hudson Bay Basin Drainage Area to the
                       Upper Great Lakes Basin Drainage Area to increase availability of
                       water resources to the Great Lakes Region.

                  *    Joint Canadian-American studies of the long-range, socio-economic
                       benefits to both countries of diverting Hudson Bay Basin waters to
                       the Great Lakes ( and possibly a proposed plan of shared effort in
                       accomplishing the same, if studies are favorable).

                  *    Improved water use management, including

                       (a) Forecasts of water requirements of regions drawing on Great Lakes
                          Basin waters and reconciliation of short and long range priorities
                          for competing water uses (recreation, residential,and industrial,
                          marine transportation, hydroelectric power generation)*

                       (b) R&D on hydraulic methods of controlling water level variations in
                          the Great Lakes (individually and collectively).

                       W R&D on feasible methods of flushing pollutants from the Great Lakes
                          or portions thereof.

                       (d) Improved measures of flood control and flood plain management.

                                                                                     111-156

                       (e),R&D on measures to conserve industrial and residential uses of
                          water (especially for those regions diverting waters from the
                          Great Lakes to other drainage basin areas).

                      M Measures for controlling water quantity.

                                                     PART IV

                    CANADIAN-U.S. COOPERATION IN APPLYING MARINE SCIENCE AND TECHNOLOGY TO
                                       MULTIPLE USES OF THE COASTAL ZONE'

                   In addition to the international implications of use of the coastal zone of

              Lakes Erie and Superior discussed in the sections dealing with the International

              Joint Commission and the issues concerning Canadian-U.S. relationships in the prob-

              lem of water quality in the boundary waters of the Great Lakes, a review of the re-

              cent organizational innovations instituted by the Canadian Government with respect

              to planning and research in the Great Lakes reveals important implications for

              Canadian-U.S. cooperation in the use of the coastal zone. The Great Lakes plays

              a greater relative role in the well-beinR of Canada than it does in the United States

              For instance, while about 30% of total U.S. productivity is generated in the Great

              Lakes Basin, more than half of Canada's productivity is tied to the Great Lakes and

              St. Lawrence Basin, Over one-third of the Canadian population is concentrated in

              the basin system, where only about 14% of the U.S,' population resides there. How-

              ever, as the Great Lakes Basin population is made up of 28 million Americans and 2

              million Canadians,, the United States still places the greatest demand on the basin's

              resources.

                   The division of responsibility for water management in Canada is somewhat sim-

              ilar to the United States. Canadian provinces own and have primary responsibility

              for the management of the water resources within their boundaries. The Canadian

              Federal Government is responsible for international waters, inter-provincial waters,

              and has legislative authority over navigation and fisheries. In the United States,

                  states have primary authority over fisheries management.

                   A major difference between the Canadian and U.S. Governmental organization on

              4-This review draws heavily on the presentation entitled "The Role of Government in
               Great Lakes Research", presented by Dr. James P. Bruce, Acting Director of the Ca-
               nadian Center for Inland Waters, at the Great Lakes Research Symposium conducted by
               the Great Lakes Panel of the Marine Sciences Council, Ann Arbor, Mich.,Oct. 30, 196:

                                                                                          iv-2

              the Great Lakes is that Canada essentially has only two provinces involved

              Ontario and, to a lesser extent, Quebec -- whereas the United States has eight

              states. This jurisdictional arrangement has given Canada an advantage in having

              a less-complicated task in coordinating water resources management with the two

              provintes..

                   Responsibility for research.--The Canadian Federal Government has the major

              responsibility for spnnsorship and conduct of water resources research, particularly

              with respect to research on international waters which, in the instance of the Great

              Lakes, has implications and applicability for other water bodies throughout Canada
              (such as the Great Slave Lake or Lake Winnipeg). The provinces, particularly Ont,isrlo

              also conduct a variety of applied research programs directly related to water re-,

              source managementneeds. For instance, the Ontario Water Resources Commission is

              concerned with pollution problems; and the Ontario Department of Mines and Forests

              is concerned with fisheries, both commercial and sport fisheries (particularly,

              the latter). Universities are also deeply involved in Great Lakes research, partic-

              ularly the Great Lakes Institute of the University of Toronto, Waterloo University,

              McMaster University of Western Ontario, and others.

                   Emphasis placed on Canadian water resources research in the Great_Lhkes has pro-

              duced some major new developments. The Science Secretariat -- the Canadian counter

              part of the U.S. Office of Science and Technology -- commissioned a survey of water
              resources research in Canada.1 The Canadian Science Council also conducted a survey  2

              identifying a number of areas in which Canada appears to be undersubscribed in water

               Water Resources Research in Canada, Special Study No. 5 of the Science Secretariat.
              2
               A Major Program of Water Resources Research in Canada. Report No. 3, Canadian
               Science Council, 1966.

                                                                                         11-3

              resources research. For instance, the report identified the area of lakes research

              as being in need of further support, particularly since over 8% of the area of

              Canada is covered by lakes and because of.the economic importance of the lakes to

              the country. These reports have led to major steps being taken toward increasing

              water resources research in Canada.

                   In 1966, the Federal Government designated the Department of Energy, Mines,

              and Resources as the Federal agency responsible for coordination of Federal water

              resources for research and management. In this same period, the reference to the

              International Joint Commission on pollution of Lakes Ontario and Erie was made in

              response to the IJC which posed three main questions to the Canadian and U.S. Govern-

              metits: (1) Are the Lakes polluted? (2) Now much of the pollution on the Canadian

              side comes from the United States and vice versa? (3) What remedial measures should

              be taken? The need to organize the study effort necessary to respond to these ques-

              tions was an important factor in the Canadian Federal Government's decision to carry

              out this organizational plan.

                   Establishment of a Center for Inland Waters.--It was essentially the occurrence

              of the above three events: (1) the realizatinn of the need for much-increased support

              of.water resources research in Canada, (2) the requirement for an input to the In-

              ternational Joint Commission's Lake Erie pollution study, and (3) the designation

              of the Department of Energy, Mines, and Resources as the coordinating Federal agency

              -- that led to the establishment of the Canada Center for Inland Waters. The concept

              was that no single discipline nor single agency could alone provide the scientific

              input (both in the natural and social sciences) needed to permit optimal management

              of Canada's water resources,in general, and the Great Lakes, in particular. The

              objective was to establish a major interdisciplinary center to include all of the

              disciplines relevant to lakes research and the three main Federal departments concerne

                                                                                         IV-4

              and to provide support to the university community interest in Great Lakes research.

                   As the lead agency for the Center, the Department of Energy, Mines,and Resources

              (EMR) includes funds in its budget for construction of the Center and for provision

              of ships and various other facilities on behalf of the university community and the

              other Federal agencies involved. EM&R will have three main components and the Center.

              The first component is the Inland Waters Branch which is primarily concerned with

              the natural science and engineering aspects of water resources in Canada and will

              provide the Canadian representation on most of the IJC boards. The Branch will be

              represented at the Center by three of its main divisions. One of these is the Great

              Lakes Division, which is concerned with the physical, chemical, and geological as-

              pects of the Great Lakes and other Canadian lakes. The initial research activities

              of this division will concentrate on the Great Lakes and will hopefully lead to tech-

              niques which can be used on other lakes throughout Canada. Another is the Water

              Quality Division, which has a major service function to undertake all of the water

              chemistry analyses of samples from the network of lakes across the country to pro-

              vide the base line for water quality data. In addition, this division will conduct

              a certain amount of research on water treatment processes. The third of these

              divisions is the Hydraulics Division which is concerned with the major service func-

              tion of calibrating all the current meters used for measuring steam flow and lake

              currents throughout Canada. The major part of the Hydraulic Division's facilities

              will be two long towing tanks for calibration purposes. In addition, there will be

              some hydraulics research facilities for sediment research and other experimentation

              and testing.

                   The second component of &M&R represented at the Center is the Policy and Plan-

              ning Branch. The Policy and Planning Branch is the socio-economic wing of the water

              sector of EM&R. The Branch will be staffed by economists, sociologists, geographers,

                                                                                          IV-5

              and planners who will be responsible for translating the technical knowledge gained

              by the other two branches into sound public policies, and will undertake research

              in these fields related to water resources.

                   The third component of E24&R is the Marine Sciences Branch. The function of

              the Marine Sciences Branch is to maintain and operate the ships for support of Great

              Lakes research.

                   There are other agencies in V.,T&R which will utilize the Center for certain as-

              pects of their work concerned with the Great Lakes, particularly the Fisheries Re-

              search Board which is concerned with biological aspects of the Creat Lakes and eu-

              trophication processes and is closely related to the Great Lakes Division which

              undertakes physical, chemical, and geological studies. The National Health and

              Welfare Board is concerned with bacteriological and health aspects of pollution and

              works closely with the Water Quality Division on developing new waste treatment proceE

                   Throug h the Association of Universities and Colleges of Canada, the universities

              are involved in the planning of the Center at a very early stage. The private sec-

              tor is involved in undertaking contract research, especially in the instrumentation

              field and in carrying out some portions of the overall research effort.

                   An advisory committee is being formed to provide management guidance of the

              Canada Center for Inland Waters. The advisory committee will consist of approxi-

              mately 4 Federal Government representatives, 7 university representatives, 4 pro-

              vincial Government representatives, and 4 private sector representatives. The commit-

              tee will participate in the planning of the Center. The provincial and Federal

              Representatives have the function of making-sure that the research results which

              are generated at the Center are put into practice in the management of Canada's
              Ater resources.

                 0. In addition to research functions, the Center for Inland Waters has important

                                                                                           IV-6

              service functions, such as the Water Quality Divisions monitoring program in the

              Great Lakes. There are also functions in connection with water resource management,

              such as working on the IN pollution reference report. The close collaboration

              of the Center between monitoring and survey types of programs, the research groups

              (both university and government), and the management responsibilities will offer

              considerable advantage to conducting and utilizing the results of Great Lakes

              research.

                   The permanent buildings of the Center are being started this year at Burlington

              and will be completed in stages by 1972. The permanent buildings will contain office

              and laboratory facilities for university researchers. These offices and labs will

              be adjacent to the government scientists worlking in the same fields in order to

              promote better interchange and coordination. The 50 laboratory rooms will accommo-

              date about 250 university researchers involved in Great Lakes research who will work

              out of the Center during various times requiring use of the facilities. most of the

              time, they will be working at thier own universities.

                   The total capital cost of the Center for Inland lvTaters facilities is estimated

              to be $23 million. Presently, site development for the permanent buildings is under

              way. However, due to the urgency involved -- especially because of the pressure of

              the IJC report on pollution and remedial action for Lake Erie -- the work of the

              Center actually began late in 1967 out of a tr ailer complex. When the permanent

              buildings are available, the trailers Will continue to serve a useful purpose as

              mobile laboratories for research work at different locations throughout Canada.

                   Research saport.--With regard to support of university research in water re-

              sourcbs, there are three ways in which universities may obtain funds. The first

              way is through contract research. In the current fiscal year, for example, the

              Center has $300,000 in contract funds which are made available to universities and

                                                                                           IV-7

               the private sector for highly directed research in areas of priority need. The

               second source of financial support for university research is through grants-in-aid

               by the National Advisory Committee in Water Resources Research. This is a newly

               established committee and has been well budgeted. The Committeets grants-in-aid

               are of two kinds: (1) development grants to encourage the development of 4 or 5

               interdisciplinary water resources research centers to provide a firm foundation from

               which they can work, not only in the Great Lakes Region, but also across the country;

               and (2) to support highly relevant projects in the universities which do not qualify

               for the large interdisciplinary development grants. These grants also take into ac-

               count program priorities. The third level of support comes from the National Re-

               search Council whose funds are directed toward supporting the excellent researcher,

               regardless of purpose. For example, in the water resources field, the National Re-

               search Council contributed in 1966 about $600,000 towards undirected research.

                   Coordination of research.--The Great Lakes research activities of the provincial

               and Federal Governments and the universities are,in large part, coordinated in an

               informal manner through the Great Lakes Uorking Group of the Canadian Committee on

               Oceanography and,to a lesser extent, through the International Association for Great

               Lakes Research. The members of the TVoek-ing Group provide, among other things, co-

               ordination and modification if field programs, joint ship and research platform
                through the Canadian Committee on Oceanography similar to theprogram. forecasts pres
               scheduling, information exchange and issues program forecastq/ issued by the U.S.

               Army Corps of Engineers Lake Survey from Detroit.

                   The Canadian Government is attempting to make coordination through these groups

               more effective by providing assistance of the Center for Inland Waters. For instance

               for the first time, the Great Lakes Study Group sponsored a meeting in Burlington

               in October 1968 in which all the agencies which have ships and research platforms

               operating in the 1969 Great Lakes season, or which want to make use of ships or

                                                                                             INT-8

              research platforms that might be operatin,::@,, were invited to propose a schedule for

              these activities including coordination between Canadian and U.S. agencies.

                    The most significant contribution of the Great Lakes Working Group has been to

              relieve the universities of the responsibility of operating reeearch vessels on the

              Great Lakes. The Canadian policy in this matter has been that while the universities

              in their research efforts should be able to direct the operations of larger research

              vessels, they should not be charged with the responsibility of their operation and

              maintenance. However, the universities do operate their own smaller research craft

              (e.g., less than 100 feet in.length). The two Federal departments operating ships

              are the Department of Transportation and the Department of Energy, Mines, & Resources

              These Departments provide vessels larger than 100 feet either full time for the

              Great Lakes research activities (such as the Port Dauphine which is operated pri-

              marily for the University of Toronto) -- or part time (such as the Limnos which is

              operated under the Canada Center for Inland Waters and occasionally is used for

              governmental research work).

                   The Great Lakes Research Committee of the Canadian Committee on Oceanography

              is involved in oceanographic as well as water resources research since the Great

              Lakes are useful as a "model" ocean as well as providing for fresh water or limnol-

              ogical research. A coordinated program of research on the physical aspects of Lake

              Ontario is being planned for the International Field Year on the Great Lakes under

              the International Hydrological Decade Program. This program is expected to provide

              a great deal of needed information about the pattern of currents and the circulation

              of the lake as well as the thermal regime and the air-mass modifications over the

              lake which will aid in improving wAter resource management of the other Great Lakes.

              The program has suffered from budget inadequacies; still many researchers are hopeful

              that these problems can be overcome by the Canadian and U.S. Governments and the

                                                                                                IV-9

              benefits of joint effort on the program realized.

                    Cooperation in international measures.--Ilhile Canada has taken significant

              steps towards organizin3 and coordinating its interests in Great Lakes research;

              it is necessary to evaluate the extent to which these arrangements are satisfactory

              for joint Canadian-U.S. coordination and to serve as a basis for setting up a basin-

              wide management regime. Because of the fewer Canadian agencies and jurisdictions

              involved with research and management activities in the Great Lakes, coordination

              was,until recently, accomplished through informal arrangements. However, with the

              establishment of the Center for Inland Waters, there is now a formal and fairly

              comprehensive research and policy body in Canada which is similar to the Great Lakes

              Basin Commission of the United States. Undoubtedly, the Center for Inland Waters

              and its parallel organization in the United States will facilitate cooperative U.S.-

              Canadian research efforts and buttress the traditional role of the IJC in adjudicatin.

              Canadian-American interests in coastal zone resource utilization.

                    A valuable contribution which could be made by the Center for Inland Waters

              with respect to the Great Lakes and other national interests would be to further

              develop the basis for water policy for increased diversion of water from Canadian

              watersheds into the Great Lakes watersheds for:

                    (1)  Reclaiming "downstream" for Canadian use with benefits accruing to the
                         United States and Canada from interim use, sucb as lake level and flow
                         regulation and pollution carriage and dilution, power generation, and
                         navigation; and

                    (2)  Purchase by and export to the United States, whereby waters may be sub-
                         ject to joint interim use as indicated above and then utilized by the
                         United States, such as through power generation at Niagra or diversion to
                         water-deficient areas of the United States.

                    A second significant Great Lakes policy question concerns the institutional

              arrangements necessary to coordinate and to integrate current operations and long-

              range planning, research, and decision-making activities of the United States and

                                                                                           IV-10
       10     Canada into a basin-wide management regime for the Great Lakes including Lake Erie

              and Lake Superior as discussed in Part I. For instance, the execution of a success-

              ful pollution prevention and restoration program for Lake Erie -- as seems likely to

              be recommended by the International Joint Commission in its study -- and the determin-

              ation of a policy position on the  "non-de.-radation" aspects of the preservation of

              water quality in Lake Superior will require the agreement upon priority measures and

              their application on a basin-wide basis, such as has been done on the cooperative

              attack on the sea lamprev by the Jointly constituted Great Lakes Fisheries Commission.

              However, in this regard, it may not be desirable to form special-purpose internationa'-'

              commissions such as the Great Lakes Fisheries Commission to respond to every basin-

              wide management problem such as pollution control, lake restoration, environmental

              monitoring, and the like. Rather, it would seem appropriate for these purposes to

              utilize the regional, basin-wide organizations with a comprehensive planning and

              coordinating responsibility, such as the Great Lakes Basin Commission and the Center

              for Inland Waters, neither of which were in existence when the Great Lakes Fisteries

              Commission was formed. Resource management issues needing arbitration or formula-

              tion of joint policies would be referred hs before to the IN for decision or

              ratification.

                                                                                      V-1

                                                   PART V

                             THE NEED FOR DIRECTION IN R&D IN THE MARIVE SCIENCES

                                FOR PROMOTING OPTIMUM USE OF THE COASTAL ZONE

                                       The Need for Regional Objectives

                 Because of the complexity of the institutional and physical forces at play,

              the development of the technological knowledge and skills has become ar, increasingly

              important factor in the growth of the Great Lakes Region. The present level of

              development could not have been achieved without the application of a wide range

              of technical knowledge and skills, especially in the area of water resources

              development. However, it is equally true that the lack of innovation in certain

              aneas of applied science and technology has allowed the evolution of major problems

              and degradation of these same resources. The interaction of the demands of

              intensive use With the natural and ecological relationships of the Great Lakes

              has created complex and difficult problems as discussed in the body of this report.

              Furthermore, as the continued growth and development of the regiba becomes more

              dependent on these resources, these problems will become more complex and difficult

              to solve in terms of adjusting man's activities to perpetuate t1he quality and

              quantity of thearegion's natural resources.

                 It is true that the development of a comprehensive plan for regional growth

              and development would be an effective tool to help achieve optimum use of

              the manpower, capital and natural resources of the Great Lakes Reion. However,

              the vrocess of research and development (R&D). should be ttrengthened as an

              integral part of comprehensive regional planning and decision-making for establishinf

              priorities for use, directing engineering and scientific studies, and reconciling

              local, national,and international interests. The provision of the information

                                                                                         V-2

               and knowledge of physical and social sciences, economic relationships, and

               institutional arrangements to enable the decision-making process to be conducted

               effectively will require an interdisciplinary approach to the investigation,

               research, and design of goals and specific actions for optimum utilization of

               unique opportunities and the avoidance of and solution to problems.

                  An observation derived from the preliminary review of the research indexes

               and other literature throughout this study is that thate does not appear to be

               a clear relationship between the large amount of scientific research being

               conducted and the goals or directions for the continued growth of the Great Lakes

               Region, or the relative roles of the institutional arrangements in the continued

               growth of the Great Lakes Region. The reasons for this appear to be twofold.

                  First, as discussed in Part I, the notion of region-wide and national goals

               for the growth and development of the Great Lakes Region has not had time to

               emerge from the institutions whose scope of decision-making and activities

               influence, or are influenced by regional development trends and problems. On

               the other hand, specific opportunities and problems -- such as water quality

               -- throughout the Region are more suseeptihle to identification,and, consequently,

               can more readily be defined in terms of specific development actions or problem-

               soiving R&D.

                  The second reason stems fasm the first. In the absence of lakewide, basinwide,

               or regionwide objectives -- except for after-the-fact problem crises such as
               lamprey cGe invasion/ or heavily.polluted waters in the Great Lakes -- the "D"
               part of the R&D process has not been directed toward achieving pre-determined

               targets. In other words, in the absence of regional objectives, it has generally

               been difficult to define the value bench marks upon which to achieve a

                                                                                       V-3

               satisfactory determination as to what is "optimum", in order to apply R&D to

               developing the means to achieve optimum use. It should be made emphatically

               clear that if the Marine Sciences Council is to carry out its mandate to

               promote the optimum use of the coastal zone, whether refering to Lake Erie

               and Lake Superior or any other coastal zone region, the formulation of policy

               and programs to this end should be derived from clear-cut regional objectives

               developed jointly ( on an intergovernmental basis) through a regional mechanism

               and approved by state and local governments which will need to implement action

               programs to achieve them. The alternative is to continue to use coastal zone

               meassres in the marine sciences to react to crises on a local scale that

               challenge regional and, hence, national well-being such as the level Of DOllution

               developed in Lake Erie from "local sources" before adequate enforcement

               procedures were implemented.

                 While the principle  of state rights-and local responsibility are fundamental

               to the American system of government, the national int erest has long been

               impaired by a piecemeal approach to solving problems of an inter-jurisdictional

               nature wherein parochial interests often play an overriding role. While the

               Great Lakes Basin Commission,, the Great Lakes Compact Commission, and the several

               Council of Governments now operating in the Lake Erie Basin are increasing

               their coordination of regional affairs, accomplishments in regional programs

               is not keeping pace with the demand which growth in the coastal zone is placing

               on them. For instance, there is no agency or program functioning presently to

               adequately study the comprehensive transportation requirements for the Great

               Lakes Basin and to consider alternative plans for affectively initiating a

               supersonic air transport system. Should the SST development program continue,

               the airborne technology will likely be at hand considerably earlier than the

                                                                                          v-4

               construction of desirable air fields or terminals,rail and highway connectors,

               and other adjustments needed to effectively integrate the SST system into the

               regional growth pattern.

                  An additional element that appears to be lacking from these planning programs

                 some of which deal with R&D ) is that of distinguishing the kinds of functions

               or problems which lend themselves to particular solutions and levels of government

               A specific example of this involves the issue of solifi waste disposal. In terms

               of level of institutional responsibility, some of the research problems can

               clearly be handled on a "'local" basis, such as certain localized land fill-

               land use aspects of solid waste disposal. Other aspects of this same problem

               such as the long-range impact of landfills on the lake ecology -- are clearly

               a regional or lake-wide concern. Even though the division of such a problem

               into its several jurisdictional relationships is a complicated task, the only

               way in which the entire governmental system under which we operate (local, state,

               Federal) may be brought to bear on these probkems is to utilize the institutional

               mechanisms that are now available to enable the interests and capabilities of

               each component, or level of government to be expressed and w@JShed in the problem-

               solving and goal-formulation process.

                                        The Need for Priority Assessment

                  This report has developed an extensive list of considerations and recommendatinns

               for measures -- including those in Appendix A -- forpromoting optimum use of the

               coastal zone of Lake Erie and Lake Superior. While the recommendations on water

               quality control in Appendix A are listed in order of their priority importance

               based upon urgency of the problem, ten criteria have been identified below which

               relate to priority analysis for distilling from the recommdudations-,in this,.

                                                                                           V-5

               report implications for implementation of, or advances in marine science and

               engineering, and which also serve as a basis for determining the allocation

               of resources (financial and technical) for these purposes. These criteria may

               be applied either individually or in combination and, under certain circumstances,

               may have overlapping implications. In general, the measure deserves a higher

               priority in accordance with the degree to which the following criteria are

               served:

                  (1) Relationship to use of coastal resources

                       The importance of the measure in achieving objectives for optimal use
                       of the coastal zone..1

                  (2)  Relationship to problem

                       Whether the measure focuses either on the marine science and engineering
                       aspects of the most urgent effects of a problem or the most critical
                       causes of a problem. ( E.g., one can either breed new k1fids of clams
                       that are unaffected by pollution or remove the sources of pollution
                       injurious to clams).

                  (3)  Probability of success

                       The measure should have a reasonable chance of achieving successful
                       results, although more risk can be tolerated for measures which hold
                       promise of larger benefits relative to costs.
                                     0

                  (4) Importance to related obJectives

                       The measure should contribute, or be applicable to, progress and 2
                       information useful to the achievement of other related objectives.

                  For example: (1) opportunity for multiple use,--(2) compatibility of use.of in-
                  shore waters,.(3) maintenance of'options for future uses not foreclosed by
                  degradation of resources Q%larine Science Affairs, March 1968, p.63), and (4)
                  other regional objectives related to the use of coastal resources, as described
                  on paes'l-44 through 1-46.
                2
                  For example, the measures for the enhaacentent of water quality may be of benefit
                  to a variety of uses: power, flow regulation, flow augmentation, recreation, fish
                  and wildlife, flood control, drainage, navigation, water supply (industrial,
                  municipal, and agricultural), and waste holding, dilution, and transportation.

                                                                                         V-6

                 (5)  Provision of key information

                      The extent to which the measure fulfills gaps and areas of inadequate
                      information that are pivotal to key planning decisions, including R&D
                      planning.

                 (6)  Resource feasibility to implement measure

                      The measure should be feasible of accomplishment with present, or a
                      realistic expansion of, facilities, manpower, and institutional
                      (organizational) arrangements. ( Additional requirements beyond
                      existing capabilities should be clearly identified as part of the
                      measure proposal.)

                 (7)  Achievable within time limits

                      The measure should be achievable within reasonable time limits in keeping
                      with short-range or long-range targets.

                 (8)  Relationship of costs to available funds

                      The measure should be able to be accomplished within reasonable fin-
                      ancial Umits whether involving a single appropriation or commitment
                      to a long-term funding schedule.

                 (9)  Area of coverage

                      While the areal nature of a problem may be focused locally, remedial
                      measures should be designed to serve regional benefits as well.

                 (10) Relationship of costs to benefits

                      Local, regional, state, national -- or International, if an inter-
                      national measure -- benefits should be favorable in relation to
                      economic and social costs. Benefits include net economic gains but also
                      certain social and other intangible benefits requiring substantive
                      evaluation.

                 In addition, there are several alternative strategies for applying these

             priority measures in marine science and technology. These strategies.are

             generally used in combination and include the following:

                 (1) The "most-urgent" strategy: This kind of strategy calls for attacking
                      the most-urgent or gravest problem first. However, the most-urgent
                      problem is often the most significant in scale, as well as requiring
                      the largest amount of resources and time to solve.

                                                                                        V-7

                  (2) The "least-cost" strategy: Under this strategy, the problem requiring
                      the least cost in resources to solve is attacked first. Because
                      certain problems may cause increasingly greater economic loss and cost
                      more to ametiorate if attacked later or over a longer period of time,
                      the least-cost strategy seeks to curtail these problems first.

                  (3) The short-range strategy: This strategy involves attacking first the
                      problems which can be solved immediately or within a short period of time
                      with existing capabilities and constraints of time and funds. Short-
                      range atrategies are frequently stop-gap or temporary in nature if applied
                      to large problems. Problems able to be effectively solved by short-range
                      strategies are usually localized and offer limited lake-wide or region-wide
                      benefits. Additionally, the cost of short-range strategies is usually
                      proportionally greater than long-range strategy accomplishments because
                      of the lack of economy 6f scale and reliance on less efficient technologies
                      or hastily planned activities.

                  (4) Lon&-range strategy: Strategies of this sort involve an integrated plan
                      for large and small problems allowing for longer periods of effort and
                      more money to solve where necessary. The aggregate potential benefits are
                      greatest in long-range strategies through the advantages in cost savings
                      through being systematic and achieving economies of scale and being able
                      to accommodate a wider range of benefits. Long-range strategies will
      0               usually require program and financial commitments overlapping several
                      generations of decision-makers, such as chief executives or legislative
                      bodies.

                  (5) Hedge strategy: This approach is used to offset the disadvantages which
                      may result from changing from one of the above strategies to another. For
                      example, if it should prove necessary to change from a long-range program
                      to a short-range program, the idea of a hedge is to have completed first
                      increment of the long-range program so as to have a workable system in thAt
                      portion if the program should be curtailed. Another variant of the hedge
                      strategy is to break a long-range strategy down into discreet Investment
                      stages which have a utility of their own but which can readily be expanded
                      or modified to conform to a long-range plan for larger scale investments
                      as funds and other resources become available, or as the need materializes.
                      Either of these variants are accomplished by using a combination of long-
                      range and short-range judgments in program timing. For example, a long-
                      range program to solve the most-urgent problem may be hedged against
                      possible change in strategy ( e. g. due to change in priorities or
                      unforeseen problems arising and pre-empting program funds) by attacking
                      some of bbegleast-cost" and "short-range" programs initially in the long-
                      range programs The main problem with'the hedge strategy is that part of
                      the advantages associated with longer range commitments are lost for
                      shorter range security.

                  While a sense of priority for the recommendations in this report have been

             made on the basis of needs and objectives discussed in Part I and the areas of

             conflict or urgency discussed in subsequent Parts, it is beyond the level of

             effort for this study to execute the analysis required for the application

             of the above criteria and strategies to all of the recommendations. It Is

             recommended that the Marine Sciences Council explore the possibility of

             establishing a priority review procedure based on the above criteria and

             strategies, perhaps on a pilot basis initially,to determine the extent to

             which it would be feasible to initiate such a review procedure on a regular

             annual basis.

                                                                                       A-1

                                                   APPENDIX A

                               A SUMMARY OF WATER QUALITY CONTROL RECOMMENDATIONS

                    A Summary of Measures Recommended for the Prevention of Pollution and
                    Restoration of the Great Lakes, with Special Attention to Lake Erie and
                        Lake Superior,and Commentary on Selected Nutrient-Removal and
                                   Non-Nutrient Pollution Abatement Measures

                    For the purposes of this report, measures recommended for water pollution

               control have been divided into two major categories: preventative and restorative.

               Preventative measures are employed to remove nutrients before discharge into the

               lake or tributary and are oriented towards removing the causes of pollution and

               accelerated eutrophication. Restorative measures are used to remove the nutrients

               or the products of eutrophy from the lake. The recommendations made by the re-

               ports indicated in the key below were compiled in rank order according to the de-

               gree of impact of the pollution source on lake pollution and were categorized

               under the following headings:

                    1. Preventative Measures

                        1. Recommendations for  nutrient-removal measures

                        2. Recommendations for   R&D for nutrient-removal measures

                        3. Recommendations for  non-nutrient pollution abatement measures

                        4. Recommendations for  R&D on non-nutrient pollution abatement measures

                        5.  Recommendations for R&D for both nutrient and non-nutrient pollution
                            abatement measures

                        6.  Recommendations on pollution abatement standards

                        7.  Recommendations for R&D in setting and controlling standards for
                            pollution abatement

                   II.  Restorative Measures

                        8. Recommendations for restoration measures

                        9. Recommendations for R&D in the restoration of Lake Erie

                                                                                        A-2

                      The key for the sources of recommended water pollution control measures

                 is as follows:

                      LER-16 (Page Number): Lake Erie ReRort: A Plan for !Jater Pollution Control,
                      Federal Water Pollution Control Administration, Great Lakes Region, Wash-
                      ington, D. C., t.,ugust 1968.

                      GLRT-42 (Page Number): Great Lakes Restoration, Review of Potentials, and
                      Recommendations for Implementation, Pacific Northwest Laboratories, Battelle
                      Memorial Institute, Richland, T-Tashington, June 17, 1968.

                      FWS: Great Lakes Basin Comprehensive Framet.,york Study, Planof Study_Document,
                      (tentative unpublished draft) Great Lakes Basin Cormission, Ann Arbor, llich-
                      igan, September 1968*

                      EAP: Early Action Propram, Vol. 3, "Public Facilities and Services for Eco-
                      nomic Development -- Lake Renewal and Management", Upper Great Lakes Regional
                      Commission, Washington, D. C., March 1968.

                      Recommendations having no source ident ification were formulated by NPA.

                 Comments have been made on selected nutrient-removal and non-nutrient pollution

                 abatement measures (Preventative Measures, items 1, 2, and 3 above) by Dr. Robert

                 A. Sweeney, consultant to the NPA Great Lakes Study Project. The commentaries

                 were made along the lines of the following questions:

                      1. Completeness of list of recommended measures

                          a. Is the list of recommended measures complete; or i4hat, if any, im-
                              portant aspects of prevention or restoration.have been omitted?

                      2. Deficiencies in R&D

                          a. What is your assessment of the R&D needs that are not being realized
                              in the overall problem of pollution prevention and restoration?

                          b. Estimate what it would take to fill these particular needs in the
                              most expeditious way.

                      3. Information for planning

                          a.  What major economic and technical information deficiencies can you
                              identify that are associated with decisions Involved in planning and
                              implementing these measures, particularly tbz high-priority ones?

                          b.  'What cost estimates (crude, if necessary) can you provide for making
                              up the key technical information deficiencies, including basis or

                                                                                           A-3

                              rationale for the estimates (e.g., use of similar information pro-
                              jects as a guideline, actual worked-out estimates on a factored
                              basis)?

                      4. Facilities or equipment problems

                          a.  What are the likely deficiencies or bottlenecks in boats, laboratories
                              equipment, instrumentation, or other facilities associated with the
                              implementation of these measures?

                          b.  Identify the key facilities that are now available to implement the
                              tivastues in whole, or in part.

                      5. Manpower bottlenecks

                          a. What are the likely deficiencies in carrying out these measures in
                              terms of the available quality and quantity of scientists, engineers,
                              and technicians?

                          b. How can these dificiencies be eliminated?

                      6. Sequencing problems

                          a.  What magnitude of time is likely to be required in implementing the
                              measures primarily because of the need to perform certain key tasks
                              sequentially in solving the problems of pollution prevention and
                              lake restoration?

                          b.  Can you identify what kinds of R&D or other measures,should be done
                              first to facilitate subsequent _R&D or execution of other measures
                              so as to reduce overall time and costs, or to enlarge the benefits?

                      7. Excessive  costs

                          a. Which  measures are likely to lead to excessive costs and, hence,
                              major deficiencies in funding support?

                          b. Which measures seem likely to pose little, if any, funding problem?

                      8. Penalties of postponement

                          a.  Mat are the most significant penalties likely to be incurred (either
                              in market values or social values) if the implementation of these
                              measures is postponed, say, 5 years?

                          b.  What key "opportunities" are being lost? (Relate to specific
                              measures, where possible; and estimate the magnitude of these
                              penalties.)

                                                                                         A-4

                I. PREVENTATIVE MEASURES

                    1. RECOMENDATIONS FOR NUTRIENT-REJOVAL MEASURES

                        1.1. The maximum removal of nutrients from municipal waste water (GLR-41)
                               using the following methods:

                               A.  Primary, secondary, and tertiary treatments of waste water
                                   where needed for the removal of phosphates and other growth
                                   promoters.

                               B.  Conventional septic tank-tile fields disposal systems in suit-
                                   able areas (EAP).

                               C.  Installation of suitable artificial absorption fields in com-
                                   bination with septic tanks in areas where minor limitations
                                   could thereby be corrected (EA.P).

                               D.  Use of holding tanks which are pumped as required in combination
                                   with waste treatment and disposal at a central facility (FAM

                               E.  Use of a conventional sewerage system in combination-with cen-
                                   tral treatment facilities (EAP).

                               F.  Use of an in-lake plastic pipe collection system in combination
                                   with central sewerage treatment facility (EAP).

                               G.  Disposal of treated effluents by crop and forest irr igation or
                                   water spreading where suitable conditions exist (E-AP).

                               H.  Use of dried sludge disposal methods (EAP).

                                                          COMIENTARY

                               Completeness of List: 1.1.A. - H.

                                   The use of alga e to remove nutrients from municipal waste water

                               was omitted from the list. One such technique being studied at

                               the Water Resources Center of The Ohio State University under the
                                                                                      1
                               direction of Dr. George Hannaappears to be effective.

                                   Further R&D is needed to find uses for the algae such as for

                                                               2
                               protein and vitamin supplements.   This could          a better

                 Hanna, G. By Personal Communication, 1968.
                 2
                 1.1ackenthun, K. @%, and W. M. Ingram, Algal Growth Aqueous Factors Other Than
                 Nitrogen and Phosphorous, FWPCA Publication    WP-24, 1966, p. 41.

                                                                                        A-5

                               cost-benefit ratio, one of the major deficiencies of tertiary

                               treatment. Likewise, additional economic research is necessary

                               to ascertain the costs of implementing the above, as well as

                               other tertiary treatment processes (i.e., electrodialysis, distil-

                               lation-absorption, etc.).

                               Deficiencies in R&D: 1.1.F.

                                   The use of an in-lake plastic pipe collection system was sug-

                               gested in 1966 by Representative Barker B. Conable, who received
                               by idea from a constituent.2  While the technology for the construc-

                               tion and installation of such sewage lines exist, the major R&D

                               deficiencies involve the design and effectiveness of sewage treat-
                               ment facilities.3  These exist whether the plant is located in the

                               lake or on the shore. Without the development of more effluent

                               techniques for removing nutrients, locating treatment facilities

                               in the lakes would afford no great advantage. The "hedge strategy"

                               should be applied until more efficient sewage treatment methods

                               are available.

                               Facilities or Equipment Problems: 1.1.F.

                                  The technology for the construction and installation of such

                               pipe currently is available. For the most part, these were de-

                               veloped by the oil and gas industries.

                                  Most in-lake construction problems have been solved by the

                               United States Army Corps of Engineers. The Corps either has or

                 1
                 Koenig, L., Studies Relating to Marhet Projections for Advanced Waste Treatment,
                 FVIPCA Publication # IIP-20-ATITR-17, 1966, p. 72.
                 2
                 Faxlanger, W.Fe, Unpublished, letter of August 6, 1966 to B.B. Conable, p. 2.

                 Summary Report - Advanced Waste Treatment. FVTCA Publication #T--T-20-MJTR-l9,1968,-

                                                                                        A-6

                               can identify the firms with the equipment and personnel to handle

                               such tasks.

                               Excessive Costs: 1.1.F.

                                   Considerable expenditures probably would be required to install

                               pipes where they would not hinder and/or be damaged by commercial

                               and recreation craft as well as dredging operations (by the Corps)

                               to keep waterways open. These activities are heaviest in and around

                               major lalreside municipalities, from which the largest amount of

                               sewage is generated. Hence, it is advisable to construct such in-lak

                               pipes and facilities away from the cities. This distance x.-7ould

                               add to construction and operation costs.

                                   Though central treatment plants generally are more economical,

                               there are instances where pumping costs for an extensive, dendritic

                               collection system could become prohibitive. This would be the case

                               if such pipes had to be depressed below the lake sediment. There-

                               fore, the central treatment facilities could be located at a higher

                               level than the major arteries of the collection system. If this

                               were the case, flow augmentation would be necessary. In the Erie

                               Basin, where the plain is fairly level with little slope towards

                               the lake, the flow by gravity would not provide sufficient head to

                               raise the wastes any appreciable distance.

                               Penalties of Postponement: I.I.F.

                                   Delays ir, the contructinn of an in-lake collection system,

                               coupled with the growth of population and increased shoreline util-

                               ization, could result in a decrease in area in which pipelines

                               could be constructed. However, to couple such a collection system

                                                                                                A-7

                                  to an inefficient waste treatment plant would be illogical. There-

                                  fore, a postponement is recommended.

                           1.2.   Improvement of land management practices in order to minimize the
                                  amount of nutrients flowing- to the lakes as silt or agricultural
                                  run-off (GLP-41) including:

                                  A. Programs begun or accelerated by state and federal agricultural
                                      agencies to control sediment loss, oxygen-demanding substances,
                                      and fertilizing agents from animal feed lots and farmland run-
                                      .off (LER-16).

                           1.3. Maximum amounts of combined storm drainage should be conveyed to
                                  secondary treatment plants (GLR-41) including:

                                  A.  Separation of storm and sanitary sewage in all new sewerage
                                      systems.

                                  B.  Programs begun or accelerated by the five Lake Erie Basin states
                                      to devise methods to deal wit& the problems of storm and com-
                                      bined sewer overflows. By 1980, all cities should have elimin-
                                      ated pollution (including nutrients) caused by urban run-off
                                      and combined sewer overflows. All outlets to surface waters
                                      should then be disinfected and directed away from recreational
                                      areas (LER-14).

                           1.4. The   disposal of dredgings, garbage, trash, and refuse to the lakes
                                  should cease (GLR-41) including:

                                  A. Disposal of dredged materials by:

                                      1)   Ponding and settling as an intermediate step prior to dis-
                                           posal of the carriage water, along with drying and consol-
                                           idating of the dredged solids (EAP).

                                      2)   Disposal of carriage water on crop lands and forest lands
                                           (EAP).

                                      3)   Disposal of conditioned solids as land fill or soil condi-
                                           tioner (EAP).

                                  B. The   Corps of Engineers should find suitable methods of disposal
                                      of polluted harbor dredging spoils other than open lake dump-
                                      ing (LER-16).

                                                                                        A-8

                                                          COID-TENTARY

                              Deficiencies in R&D: 1.4.B.

                                  There has not been extensive investigations on the nature of

                              the harbor sediments transported by the Corps to ascertain the

                              quantity and quality of the polluted materials. Some studies that

                              have been conducted, by such agencies as the Great LaTres Laboratory

                              of the State University College at Buffalo and the Center for Great
                              Lakes Studies of the University of Wisconsin at Milwaukee, I  demon-

                              strated considerable variations in the physical and chemical char-

                              acteristics of the sediment, not only among the eiet. harbors in-

                              vestigated, but within harbors.

                                  In addition, it has been reported that former Corps dump sites

                              are supporting larger populations of fish than similar areas that

                              did not receive dredged materials. In fact, these dump sites are
                                                       2
                              sought out by fishermen.

                                  Hence, additional research is necessary on the nature, extent,

                              and effects of materials dredged from the harbors of the Great Lakes.

                              Such studies could be bandled through contracts with private and

                              academic agencies who already have the presonnel, equipment, and

                              knowledge to handle such tasks.

                                  As for those materials that are either "too" toxic and/or high

                              in nutrients to be deposited in the lakes, several disposal methods

                              currently are being examined. The most economical appears to be

                 IfInvestigation of Treatability and Effect on Biota of Dredged Materaisl from Sel-
                         C@
                 ected Great Lakes Harbors", Report from Corps of Engineers Contract# DACW49-68-C-OC
                 with University of Wisconsin at Tlilwaukee,@ 1968.
                 2
                 Sweeney, R. A., Reports (7) on some of the effects of slag deposition on fisher-
                 ies of Eastern Lake Erie, Report from Bethlehem Steel Contract# 21-6009-A with
                 State University College at Buffalo, 1969.

                                                                                           A-9

                                depositing the material behind slag dikes within the harbor. It

                                has been proposed that such areas could be utilized eventually

                                for parks, industrial sites, etc. However, since none of the

                                areas have been completely filled, their value cannot be determined.

                                Hence, two to three additional years research will be required.

                                (The continuation of these investigations currently is in jeopardy

                                due to proposed cuts in the Federal budget.)

                                Information for Planning: 1A.B.

                                    Initial fundina for the above studies amounted to $5,500,000;

                                most of which went for pilot dikes. Additional funds have been

                                requested to complete the research. If the supplement is author-

                                ized, it should be sufficient to finish the comprehensive investi-
                                gations.1

                                Facilities or Equi2ment Problems: 1A.B.

                                    If money is available, the facilities, equipment, and person-

                                nel are available to gather and analyze the necessary data.

                                    The University of 1-Tinnesota at Duluth and the State University

                                College at Buffalo are equipped to carry out such research on Lakes

                                Superior and Erie, respectively. The University of Fisconsin at

                                Milwaukee and the University of Michigan could contribute to these

                                investigations If given assistance in sampling.

                                    It does not appear that the FT,,TPCA's Cleveland, Duluth, and/or

                                Chicago offices have sufficient manpower and equipment to conduct

                  Tarbox, Gen. R. M., Statement to the Four-State Enforcement Conference on Lake
                  Michigan Pollution, Chicago, Illinois, 1969.

                                                                                         A-10

                                these investigations.I

                                Manpower Bottlenecks: 1.4.B.

                                    The lack of qualified technicians appears to be a problem for

                                both private and governmental agencies. Academic institutions are

                                able to supplement these deficiencies with students, most of whom

                                will become engineers or senior scientists if they remain in the

                                aquatic fields of endeavor.

                                    The need for additional support personnel is a national problem.

                                By 1972,it has been estimated that we will need 225 percent (23,213

                                individuals) more water pollution.technicians than the number in
                                                          2
                                1967 (10,267 individuals).

                                    It was hoped that such programs as the Sea Grant Act and the

                                training programs of the Federal I-later Pollution Control Program

                                would generate technicians for the Great Lakes research. However,

                                neither of these programs have received sufficient fiscal support

                                to remedy the problem due to other priorities.

                                Sequencing Problems: 1.4.B.

                                    Approximately two years of additional data from sediment analyses

                                and pilot dike (land-fill) studies will be necessary before a sound

                                decision can be made as to what material should or should not be

                                dumped in the open lake. Through such research, it may be found

                                that some of the dredgings are not detrimental. Therefore, these

                  Posten, Tl.. By Personal Communication, 1968. (Note: Dr. Posten is the Director
                  of the FWPCA's Great Lakes Regional Office in Chicago.)
                  2
                  "Junior Colleges Enter Pollution Manpower Picture", Environmental Science and
                  Technology, Vol. 2, No. 5, 1968, pp. 328-329.

                                                                                        A-11

                              could continue to be put into the lake, the least expensive disposal

                              technique. This also could decrease the space needed for on-ahore

                              deposition.

                                  Through the pilot dike projects, more cost/benefit data is being

                              generated on which a sounder decision for subsequent disposal tech-

                              niques can be formulated.

                              Excessive Costs- 1.4.B.

                                  To ignore the above could result in a considerable waste of both

                              time and funds. It is both more expensive and time consuming to

                              empty a dredge or barge onto shore than to dump such material in the

                              lake. For example, it costs ten times as much per cubic yard to
                              PUMP dredged material ashore in Buffalo than to put it in Lake Erie.1

                              Likewise, dikes used to contain dredgings are expensive. For ex-

                              ample, the construction of the 2,000 linear foot limestone dike with

                              360,000 cubic yards of limestone in Buffalo cost over $480,000.

                              If the dike.could be used for a longer period fo time by continuing

                              to put less harmful wastes in the lake, this would mean a consider-

                              able saving.

                              Penalties of Postponement: 1.4.B.

                                  Enforcement of the blanket statement that all harbor dredgings

                              should not bemput in the open lake should be postponed until the

                              areas of polluted sediment have been identified. Likewise, the

                              pilot dike studies should be continued to determine which alternate

                              method of disposal is most economical and effective. The time and

                 Wright, Col. A. By Personal Communication, 1969. (Note: Col. Wright was the former
                 district engineer in Buffalo for the Corps).

                                                                                            A-12

                                funds necessary to complete these studies far outweigh the chance

                                that some polluted sediment may continue to be put in the lakes.

                          1.5.  Fish management as a means of removing nutrients or enhancing fish-
                                ery of a lake (EAP) should be carried out to the extent practical
                                including:

                                A. Removal of rough fish, particularly alewives (GLR-41).

                                B. Harvest of desirable fish, preferably by game and commercial
                                    fislAing to the extent that nutrient removal is optimized and
                                    propagation is sustained (GLR-41).

                                                            COPMENTARY

                                Completeness of List: 1.1.5.

                                    One measure that was omitted was the stocking of the lake with

                                desirable game fish that are tolerant of present environmental con-

                                ditions. (Restoration of the Lake Erie fisheries was recommended

                                in LER-16). One such fish that has been highly successful in Lake
                                Michigan is the coho salmon (Oncorhvrchus kisutch). This OXS4@@M'

                                matures rapidly, is "exciting" to catch, and may provide a check

                                on the rough fish populations.

                                    The coho stocking program has bee  ri highly successful in Lake
                                Michigan1 resulting in the rejuvenation of the sports fishery in

                                that lake. This has prompted the formulation of a cooperative
                                                                                                   2
                                stocking program in 1968 among New York, Ohio, and Pennsylvania.

                   Tody, W. H., "Introducing the Coho", Limnos, Vol. I., No. 1., 1968, pp. 17-20.
                  2
                   Pearce,, W. A., Status of Coho Salmon in Few York State, Report by the New York
                   State Conservation Department, 1968, p. 4.'

                                                                                          A-13

                               The impact of the latter cannot be evaluated fully until 1970.

                                   More R&D is needed to develop other species of fish with the

                               above characteristics. In addition, more sites and better tech-

                               Piques for stocking the lake should be introduced,

                               Deficiencies in R&D: 1.1.5.A.

                                   There is little necessity for R&D on techniques for harvesting

                               the so-called rough or trash fish (i.e., alewives - Alosa pseudo-

                               harengus, carp - Cyprinus carpio, and sheepshead or drum -- Aplod-

                               inotus grunniens). Essentially, the same methods can be utilized

                               that were employed in the gathering of the so-called desirable fish

                               (i.e., whitefish -- Coregonus clupeoforTnis, blue pike - Stizostedion

                               glaucum, and yellow pike or walleye - Stizostedion vitreum. vitreum.

                                   Currently, there is an. excess of both manpower and equipment

                               since the Lake Erie fisheries from both Canadian. and American ports

                               are rapidly declining. For example, the blue pike commercial catch

                               decreased frov. 20,000,,000 pounds in 1956 to 79,000 in 1959 to prac-

                               tically nothing at all since then.

                                   The major problem regarding the gathering of trash fish is util-

                               ization. Some have been used for cat and mink food. However, this

                               is a small market.

                                   One use that has been suggested for these organisms is that
                               they be processed into fish protein concentrate (FPC) or fish flour.  2

                  1
                  Robertson, A., "Miat is Happening to our Great Lakes", Linnos, Vol. 210 110. 1,
                  1969, pp. 12-17.
                 2
                  Sweeney, R. A., "Lake Erie -- The  Lively Corpse", Conservation in Pocus, Vol. 2,
                  -No. 1., 1969, pp. 6-7.

                                                                                        A-14

                                   Significant legal and technological problems concerning FPC
                               have been solved recently.112  To date, PAD on FPC has been limited

                               to marine fish. Investigations are needed on the processing of

                               trash fish from the Great Lakes into fish flour. If this research

                               is successful, such an industry could contribute to the lessening

                               of the world's protein shortage while assisting in th,e removal of

                               nutrients from the lake and revitalizing the sagging fishery in-

                               dustry.

                               Information for Planning: 1.1.5.A.

                                   The techniques and economics of processing marine fish into

                               FPC already have-been determined through PAD at pilot plants spon-

                               sored by the Bureau of Commercial Fisheries at Texas A&M Univer-

                               sity, College Station, Texas and the University of Maryland, College
                                              3
                               Parl-1, Maryland. However, no information is available on the use-

                               fulness of fresh water fish in such a-process.

                                   A pilot plant should be constructed on or near Lake Erie. The

                               A&IM plant cost $150,000 to construct. An additional $100,000 would

                               be needed for staff and supplies for a two-year investigation.

                               If successful, some of the costs could be recaptured through the

                               sale of the hardware to private industry.

                               Facilities or Equi2ment Problems: 1.1.5.A.

                                   Institutions with sufficient competence to operate a FPC pilot

                               plant on or near Lake Erie include State University of New York

                 I
                       R.R., "Fish Protein Concentrate Production is on the Rise", Ocean Industry,
                 Vol. 3, No. 11, 1968, pp. 47-50.
                 2
                 Ocean Industry, Vol. 4, No. 1, 1969, pp, 36-40.

                 Nunn, Ibid

                                                                                       A-15

                              Water Resources Center at Syracuse, Cornell University, The Ohio

                              State University, and the University of Michigan.

                                  Private industry, such as Pillsbury, General Mills, and the

                              National Biscuit Company, also might be interested in such a study.

                                  A consortium of an industry and academic institution, such as

                              occurred at Texas A&M could reduce costs.

                              Penalties of Postponement: 1.1.5.

                                  (1.1.5.A.) With the rapid decline in commercial fisheries on

                              Lake Erie, more fishermen are seeking employment in other occupations

                              Likewise, few, if any, new individuals are learning the skills of

                              commercial fisheries. The longer the delay in the revitalization

                              of this industry, the less trained individuals will be available.

                                  Likewise, the longer the present fishing fleets and equipment

                              remain unused, the greater the refurnishing and rehabilitating costs.

                                  (1.1.5.B.) There is significant evidence that the populations
                                                         0

                              of the present game and commercial fish in Lake Frie, with the ex-
                                                                                               2
                              ception of yellow perch (Perca. favescens) are declining rapidly.

                              Any program to promote the harvestinR of these organisms would con-

                              tribute to the problem rather than the solution.

                        1.6.  Wastes from watercraft should be treated to the equivalent of
                              secondary treatment (CLR--41).

                                                    CO@,NEF'TARY

                             'Deficiencies in R&D: 1.6.

                 Ibid..

                 Robertson, A., op. cit..

                                                                                         A-16
       As

                                   There has been a fair amount of research on the treatment of
                               wastes aboard watercraft. 1,2 In addition, much of the R&D con-

                               ducted on house and camper trailer s car. be applied.

                                   The major problem appears to be getting the states and provinces

                               to agree an what treatment method(s) is acceptable. This problem

                               is created by the frequent movement of craft across state, provin-
                               cial, and international boundaries. 3,4  R&D on mechanisms (political)

                               to arbitrate such legislation Is needed.

                               Penalties of Postponement: 1.6.

                                   Failure to devise an acceptable treatment system will result in

                               the postponement of the installation of pollution abatement equip-
                               ment. This already has occurred in Few York State.  5

                                   'While the effluent from pleasure craft is small when contrasted

                               to the amounts generated by major cities and factories, within re-

                               stricted areas, their effects may be considerable. For example,

                               the coliform count in Put-In-Bay Harbor (Ohio) increases up to one

                               thousand fold over the July 4 weekend. As a result, swimming may

                               be banned when the demand for this form of recreation is highest.

                                   The failure of governmental agencies to reach an accord on

                               treatment facilities for boats have led some manufacturers to omit

                 Clark, B.D., Houseboat 'Haste i4ethods for Collection and Treatment, Pacific Lab-
                 oratory, FWPCA, Corvallis, Oregon, 1967, p. 82.
                 2
                 Dugan, P.R., Evaluation of Marine Toilet Chlorinator Unit , New York State Re-
                 search Report #9, 1962, p. 58.
                 3
                 IlBoat Sanitation Laws Summarized", Limnos, Vol. 2, No. 1, 1969, p. 26.
                 4
                 Legislative Ledger, The Outboard Boating Club of America, Vol. 16, No.3, 1969, p.5

                 Ibid..

                                                                                             A-17

                                 toilets in their 1968-69 models. OvTners of such craft are forced

                                 to solve the waste treatment and/or disposal problems.

                                     The indecision also is discouraging private industry from con-

                                 ducting its own R&D on treatment methods and hardware.

                          1.7. Regulation of lake levels and flows for dilution and transport of
                                 waste materials (to the ocean) should be optimized in conjunction
                                 with other interests in regulating lake levels and flows including:

                                 A.  Development of additional sources of water supply to a lake to
                                     decrease detention time or manipulate water temperatures to re-
                                     duce nutrient buildups or aquatic plant productivity (EAP).

                                 B.  Extension of sewage treatment discharge pipes extended distances
                                     from shore to deeper and less nutrient-rich waters.

                                 C.  Timing of waste disposal according to atmospheric or river
                                     surge conditions.

                                 D.  The use of dredging techniques to establish greater depths and
                                     increase flows and circulation to provide dilution of nutrient
                                     and other pollutant buildups, especially in conjunction with
                                     other dredging purposes such as navigation and selective re-
                                     moval of materials for bottom restoration (EMP).

                                                             CM-VtEVTARY (1.1.7.A. - D.)

                                     Each of these suggestions are largely unsound. The only sources

                                 of water to dilute the Great Lakes are in Canada. The Canadians

                                 are all too aware of the worth of their aquatic resources and of

                                 the fact that most of their economy is controlled by foreigners,

                                 particularly Americans. The people and their governmental repre-

                                 sentatives do not desire to develop additional programs that would

                                 tighten theee economic binds. All suggestions by the United States

                                 4
                                 that T
                                      -Yater should be brought doxm from the ,@Torth have (thus far)

                                 met with concerted opposit4on. (However, this does not preclude

                                 the possibility of negotiating water resources matters within the

                                                                                        A-18

                               context of broader U.S. and Canadian interests in bilateral agree-

                               ments.)

                                   Even if such water were introduced, it would have relatively

                               little effect on the annual heat budget of either Lake Erie or Su-
                               perior. Superior is too vast (1.22 x 1016 liters) to be affected

                               in regard to changes in temperature and retention time.    Lake Erie,

                               which is relatively shallow, has such an enormous surface area to
                               volume (25,745 km2/458 lcm3) that the effect on the summer temperature

                                                   2
                               would be negligible.   Even if a decrease in the average temperature

                               of Lake Erie was possible, the ecological amplitude with regard@ to

                               temperature of most of the algae (i.e., blue-green and Cladophora)

                               that are causing the problems is such that their overall reduction

                               probably would be negligible.

                                   Decreasing the retention time and increasing the circulation in

                               Lake Erie would be of little value if the quantity of pollutants

                               being added to the lake were not reduced. The consequences of the

                               former without the latter would be most detrimental to Lake Ontario,,

                               whose dissolved mineral content currently is increasing at the rate
                                                     3
                               of 9.6 ppm per decade.   Hence, we must avoid passing the nutrient

                               "buck" from Erie to Ontario.

                                   The discharging of sewage wastes into deeper waters, particularly

                               those of Erie, would compound our problems. It is a fallacy to be-

                               lieve that the deeper waters in Lal<e Erie are less nutrient-rich.

                 1
                 Wood, K.G., "Pollution and Lake Erie", Bios, Vol. 34, No. 3, 1968, pp. 103-110.
                 2
                 Windchester, J.N., "Pollution Pathways in the Great Lakes", Limnos, Vol.   2, No. 1,
                 19601, pp. 20-24.

                 Weiler, R.R., and Chawla, V.K., "The Chemical Composition of Lake Erie", Proceed-
                 ings of the llth Conference on Great Lakes Fesearch, 1969, pp. 593-608.

                                                                                          A-19

                              Quite the contrary, the lake appears to be homogenous.  1  In addition,

                              the biochemical and chemical oxygen demands (BOD and COD) most likely

                              would increase the area and the duration of low oxygen that have
                              been observed during the summer  near or at the bottom of Lake Etie. 2

                                  The quantity and duration of the average, maximum, and minimum

                              rates of flow of each of the United States tributaries of Lake Erie

                              indicate that these streams and riversare not sufficient to accept

                              and digest any appreciable amount of the wastes generated by the
                                                                       3
                              towns and factories along their.shores.     In other words, the quan-

                              tity of wastes that would need to be stored would exceed capacity

                              of the tributaries to absorb the pollutants.

                                  Hence, suggestion 1.1@7.C. is impractical.

                                  Dredging a tributary decreases flow. Id fact, many of the    prob

                              lems concerning Lake Erie tributaries, such as the,,Buffalo and  Cuya-

                              hoga, have been caused by the fact that they were enlarged to permit
                              shipping. 4  Therefore, the same amount of water flowed through a

                              wider channel. This decreased the speed and,subsequently, the di-

                              gestive capacity of the rivers. .

                                  Another fallacv of 1.1.7.D. is in failing to recognize that

                              dilution is seldom a solution to pollution. The most effective

                              measures to correct such situations Are to keep the toxic and nu-

                              trient materials out of the tributaries and lakes.

                 I
                 Ibid..
                 2
                 Carr, J.F., Dissolved OxZgen in Lake Erie, Past and Present, Great Lakes Research
                 Division Publication# 9, 1962, pp. 1-14.
                 3
                 Lake Erie Environmental Summar
                                               @y - 1963-64, FTqPCA, 1968, D. 170.

                 Sweeney, R. "Rejuvenation of the Buffalo River" - Unpublished reports on findiligs
                 from an investigation sponsored by the Allied Chemical Company, 1969.

                                                                                                  A-20

                        2. RECOMMEMATIONS FOR UD FOR NUTRIENT-RE.41-!OVAL MEAVSTMES

                            2.1.   Control of nutrient input to Lake Erie through better treatment meth-
                                   ods, reduction of nutrient input in agricultural run-off, and de-
                                   velopment of a suitable product solution for phosphorous contained
                                   in detergents (LER-16).

                            2.2.   Research is needed into the key mechanisms of eutrophication ftb-
                                   cess and aging of the lakes (LER.-16) Including:

                                   A. Factors influencing eutrophication process.

                                   B.  Factors influencing algal growth rates.

                                   C.  Effects of algal growth.

                                   D.  Development of control techniques including:

                                       1) Physical removal of algae and its disposal as waste.

                                       2)   Commercial utilization of harvest algae.

                                       3)   Use of chemical herbicides to control algae.

                                       4)   Reduction of pollutant nutrients.

                                       5)   Dredging and hydraulic flushing techniques to remove bot-
                                            tom sediments containing decomposed algae and nutrients and
                                            to increase depth of water near shore.

                                       6) Biological control measures.

                            2.3. R&D on more cost-effective and control (LER-16) methods of reducing
                                   pollution for ships or recreational boating waste disposal.

                                                                 COMMENTARY

                                   Deficiencies in P&D: 2.2.A.

                                       The factors influencing the process(es) of eutrophication

                     Stewart, K, and Rohlich, G., Eutrophication -- A Review, California Water Re-
                    sources, Record Publication# 34, 1967, p. 180.

                                                                                       A-21

                               and the Great Lakes 1,2,3,4 have been investigated for a number of

                               years. Each of these reports has. been somewhat lacking because

                               there has not been many comprehensive (chemical, biological, and

                               physical) studies conducted on La"-e Erie. For the most part,

                               studies have been concerned with a limited group of organisms, such
                               as plankton, or chemical parameter, such as carbonates.5   In order

                               to understand eutrophication, one must examine the "entire picture".

                               Few facilities, either academic or governmental, have the finances,

                               equipment, and/or staff to conduct such a broad study over a period
                               of several years. Probably only the investigations by the FWPCA 6
                                                            7
                               and the Great Lakes Institute have come the closest to such a

                               broad survey. Houever, those studies also have been deficient.

                                   While it is not possibIle to re-do the studies that have been donc

                               in the past, we are able to use these data to identify our informa-

                               tion gaps. Once this has been accomplished, a coordinated plan of

                  Beeton, A.M., "Eutrophication of the St. Lawrence", Great Lakes LimnoloRV and
                  Oceanography, Vol. 10, No. 2, 1965, pp. 240-254.
                 2
                  Indices of Great Lakes Eutrophication, Great Lakes Research Division Publication#
                  15, 1966, pp. 1-8.
                 3
                  Davis, C.C., "Evidence for the Futrophication of Lake Erie from Phytoplankton
                  P                   an
                   tecords", Limnology  d Oceanography, Vol.9, No.3, 1964, pp. 275-283.
                 4
                  Powers, C.F., and Robertson, A., "The Aging, Great Lakes", Scientific American,
                  Vol. 215, No. 5, 1966, pp. 94-104.
                 5
                  Sweeney, R.A.(ed.), In Press. "Clianges in the Biology of Lakes Erie and Ontario",
                  Buffalo Museum of Science.
                 6
                  Lake Erie Environmental Summary    1963-64, 17.qPCA, 1968, p. 170.
                 7
                  Great Lakes Institute Data Records -- 1963 Survey, Part 1, Lakes Ontario, Erie,
                  and St. Clair; Great Lakes Institute, University of Toronto, PR-23,1965, p. 195.

                                                                                     A-22

                               study, such as the one proposed by the Great Lakes Basin

                               Commission , involving a variety of expertise should be
                               fort4lated and initiated. If the finding is available, the
                               cooperation and participation of both private and public

                               agencies can be mustered.

                                   The Joint Industry/Government Task Force on Eutrophi-

                               cation is an example of an effort that may contribute to
                                                                             2
                               the understanding and solution to the problem.

                IGreat Lakes Basin Commission Comprehensive Framework Study, 2P. cit., p. 317.
                2Bueltman, C. G. "Progress Toward Limiting Eutrophecation", address before
                the 15th Annual Conservation Conference of the National Wildlife Federation,
                Washington, D. C., 1968.

                                                                                     A-23

                              Information for Planning: 2.2.A.-D.

                                   To plan and carry out a comprehensive survey, involv-

                              ing hydrological, geological, chemical, socio-economic

                              and biological studies on Lake Erie would require about $

                              1 million, This figure was derived from the budget of

                              Great Lakes Basin Commission's plan of study for the entire
                              Great Lakes area.1

                              Facilities and Equipment Problems: 2.2.A.-D

                                   One of the major difficulties that has retarded com-

                              prehensive surveys by American agencies has been the lack

                              of ships or ship-time for extended cruises. (The Cana-

                              dians solved the problem by assigning the Department of

                              Transportation to provide and maintain craft for research

                              on the Great Lakes). Academic institutions that have

                              operated their own vessels, such as the University of

                              Michigan, have found the costs and administrative time to
                              be burdensome.2

                                   While the U.S. Coast Guard does provide ship-time,

                              researchers have little control over the duration and/or

                              route of such cruises. Likewise the Coast Guard vessels

                              are neither equipped nor designed for limnological re-

                              search. To eliminate this problem one or more ships,

                              such as the Limnos, should be assigned for duty in the Great Lakes.

               lIbid.

               2
                Chandler, D., by personnel communication, 1968. (Note: Dr. Chandler is the
               Director of the Great Lakes Research Division of the University of Michigan.)

                                                                                      A-24

                                  Current shore facilities, such as those operated by the

                             State University of New York, University of Michigan, and

                             University of Wisconsin at Milwaukee, are adequate. The

                             Ohio State University and University of Minnesota lakeside

                             physical plants are being improved.

                             Most of the governmental laboratories currently have some

                             equipment and/or manpower problems. Hopefully these will

                             be remedied when governmental commitments abroad are reduced.

                             Manpower bottlenecks: 2.2.A.-D.

                                  There appears to be a sufficient number of senior

                             scientists and engineers for the jobs opening that are

                             available. (This may not be the case if additional govern-

                             mental funds are made available for the reasons stated in

                             2.2.A.4.) However',there is a need for additional technicians.

                             Sequencing problems: 2.2.A.-D.

                                  While some measures, such as removing nutrients from

                             domestic and industrial wastes, can and are being taken to

                             retard eutrophication, major projects (i.e. dredging of the

                             bottom of Lake Erie or prohibiting the open-lake dumping of

                             the harbor dredgings) should not be made until after a com-

                             prehensive study is completed. Failure to do so could

                             result in unnecessary expenditures and/or ineffective

                             legislation.

                             Deficiencies in R & D: 2.2.B.

                                 Most     studies involving algal growth rates and

                                                                                          A-25

                                euprophication have concerned phosphates. Such investim

                                gations stem-either directly or indirectly from the re-

                                search of those who kound phophorus to be the limiting

                                factor in the development of algae within certain
                                                  1,2
                                Connecticut lakes      In other words, all the other

                                factors, both dhemical and physical, were acceptable for

                                the growth of these plants with the exception of phos-

                                phorus, which was present in extremely low quantities.

                                When more phosphorus was added, the algae increased

                                proportionally. It has been proposed that phosphorus

                                is the limiting factor with regards to algae growth
                                in Lake Erie.3  Yet it has been demonstrated that

                                phosphorus may not be thesole controlling and/or limit-
                                ing factor.4  Vitamins, chelating agents and iron have

                                been shown to be of equal or greater importance in other
                                natural environments.5  Hence, more research should be

                                spent both in the field and the laboratory to ascertain

                                if any other factor(s) are as critical as phosphorus in

                                the limiting of algae growth in Lake Erie..

               1Hutchinson,G.E., "Limnological Studies in Connecticut, Critical Examination
               of the supposed Relationship Between Phytoplankton Periodicity and Chemical
               Changes in Lake Waters," Ecology, Vol. 25, 1944, pp. 3-26.
               2Hutchinson,G.E. and V.T. Bowen, "A Direct Demonstration of Phosphorus Cycle
               in a Small Lake." Proceedings of the National Academy of Science. 33- 148-153.
               Vol. 33, 1948, pp. 148-153.
               3
                Tazwell, C.M., Conference in the Matter of Pollution of Lake Erie and Its
               Tributaries. Cleveland, Ohio. U.S. Department of Health, Education and Welfare,
               Washington, D.C., 1966.
               4
                Mackenthun, K.M. and WM Ingram, Algal Growth Factors Other than Nitrogen and
               Phosphorus, FWPCA, Washington, D.C., 1966, p. 41.
               5
                Ryther, J., by personnel communication, 1968. (Dr. Ryther is the Director of
               Biology at the Marine Biological Laboratory in Woods Hole, Massachusetts.)

                                                                                       A-26

                             Such investigations could be promoted through such granting

                             agencies as the National Science Foundation and/or Federal

                             Water Pollution Control Administration, as well as through

                             in-house research by governmental agencies. These investi-

                             gations could be conducted for approximately $250,000 per

                             year. This would cover the salaries of three or more

                             senior staff and their supplies, assistants, overhead, etc.

                             for a two year study. This is a small sum when contrasted

                             with the amounts proposed for the removal of phosphorus from

                             wastes through tertiary treatment.

                             Facilities or equipment: 2.2.B

                                  There are sufficient, well equipped government labora-

                             tories (FWPCA's Duluth and Cincinnati labs) and academic

                             institutions (Ohio State University, University of Michigan,

                             Cornell University) where such studies could be carried out.

                             Deficiencies in R & D: 2.2.C

                                  Most of the effect of algal growth related to pollution,

                             including the fouling of beaches, boats and water supplies,

                             have been and are being investigated. Several problems remain,

                             such as the factors that trigger the detachment of Cladophora -

                             an algae that has caused beaches to close when it washes ashore

                             and decays.

               'Water-Oriented Outdoor Recreation in Lake Erie Basin,     cit.

                                                                                       A-27

                                   Currently there appears to be sufficient personnel

                              in academic and governmental facilities and funds (through

                              the National,Institute of Health, Federal Water Pollution

                              Control Administration and Office of Naval Research) to

                              conduct this research. The people involved in these

                              studies appear to know through personal contact and science

                              information exchanges (i.e., Smithsonian) who is doing what.

                              Therefore.,there is no need to develop mechanisms to

                              structure or coordinate this research.

                              Facilities or equipment-problems: 2.2.C.

                                   Aside from the various regional offices of the FWPCA,

                              competent algal specialists are located at Central

                              Michigan College, Ohio State University, State University

                              of New York, Syracuse University, University of Michigan,

                              University of Minnesota and the University of Wisconsin.

                              Deficiencies in R & D: 2.2.D.I.-2.

                                   Lakeside dwellers have begun to pool their resources

                              to remove the algae along their beaches. This has

                              encouraged the formation of a number of private companies

                              and the development of hardware for the harvesting and

                              disposal of algae, particularly Cladophora and other

                              attached forms. Hence, there does not appear to be a

                              need for the government to promote activity in this area.

                                                                                     A-28

                                 To date only the marine algae have been commercially
                            utilized.1'2  Freshwater algae possibly can be utilized as

                            a source of vitamins, proteins, drugs.and mulch. R & D

                            is needed on the chemical composition of these plants and

                            the variations in these components with the seasons. Such

                            research could be conducted at governmental laboratories

                            and encouraged through the various granting agencies.

                            Those who have had experience with marine algae, such as

                            the investigators at Lamont Laboratory of Columbia

                            University, should be encouraged to look into the fresh-

                            water area.

                                 If these investigations indicate that a potential

                            product, the small pilot plants should be encouraged.

                            Perhaps these could be co-financed by industry and an

                            academic institution.

                            Information for Planning- 2.2.D.l.-2.

                                Most likely $100-150 thousand per year over a three

                            period would support a reasonable research effort at

                            private and academically affiliated laboratories on algae

                            utilization. A similar amount should be spent for in-house

                            research. If drug and food companies could be interested

                            in supporting such efforts, without getting into the pro-

                            blem of priviledged data, this could reduce the level of

                            federal funding.

              Taft, C.E., Water and Algae - 11orld Problems, Educational Publishers,
             St. Louis, Missouri, 1965.
             2Scholes, W.A., "Harvesting Seaweed Off Australis," Ocean Industry.
             4(3): 69-70. Vol. 4, No.3, 1969, pp. 69-70.

                                                                                                A-29

                  3. RECOMHE14DATIONS FOR NON-NUTRIENT POLLUTION ABATEMENT MEASURES

                      3.1. A minimum of secondary treatment should be provided by municipal-
                             ities discharging waste water to the Great Lakes (GLR-32)
                             includingz

                             A.  Treatment should be efficient and continuous and should
                                 provide for 90% removal of oxygen-consuming wastes. Limits
                                 should be recommended for specific pollutants such as
                                 suspended solids, settleable solids, ammonia, phenolics,
                                 oil, and those exerting a biochemical oxygen demand. These
                                 limits should be setat a level commensurate with their
                                 ability to interfere with the beneficial uses of water
                                 (GLR-32).

                             B.  Whenever possible, treatable industrial wastes should be
                                 accommodated by municipal waste water treatment systems;
                                 and master plans for integrated treatment facilities in
                                 urban areas should be formulated. Areas with septic tank
                                 disposal systems should be incorporated into sewerage
                                 systems as soon as possible (GLR-32).

                      3.2.   Continuous disinfection of all municipal waste water also
                             should be affected as soon as possible (LER-16). Immediate
                             measures must be instituted by the states to provide for bath-
                             ing conditions which meet health standards (LER-14).

                             A.  The immediate measures should take form of disinfection
                                 at the outlets in the vicinity of bathing areas and
                                 diversion of troublesome outlets to remote areas away
                                 from beaches since the major cause of the public health
                                 problem at bathing beaches is the discharge of fecal
                                 matter from combined storm and sanitary sewers and
                                 inadequately treated sewage (LER-14)

                             B.  Existing public beaches should be opened for bathing as
                                 soon as adequate emergency control measures are taken
                                 (LER-14).

                             C.. Local water pollution control agencies should establish
                                 surveillance of the sewer outlets that have been designated
                                 as affecting bathing beach Areas to see that all discharges
                                 are inadequately disinfected (LER-14).

                             D. The beaches themselves should be continuously monitored to
                                 assure maximum protection to public health (LER-14).

                                                                                       A-30

                                                  COMMENTARY

                              Deficiencies in R & D: 3.3.2.A.

                                   Currently sewage is disinfected through the addition of

                              chlorine gas, which destroys most pathogenic organisms. How-

                              ever, there are two problems associated with this treat-

                              ment. Chlorine reacts with phenols and forms chlorophenol,

                              which causes the water to stink like hospital cleaner. (The

                              conmercial cleaner "CN" contains chlorophenol.) Most

                              people are somewhat hesitant to bathe in such an environ-

                              ment.

                                   Also, chlorination does not destroy the virus that

                              causes hepatitis. Hence, there is a need for some other

                              methods to rapidly and economically disinfect sewage that

                              does not have the above problems. Some R & D has been done
                              on using free radical oxidation1 and ozone. However, there

                              is a need for additional studies, which could be conducted

                              within federal, private and academic agencies.

                                   While diversion of troublesome outlets from beaches

                              may appear to be a solution, it is economically and biologi-

                              cally unsound. Changes in currents via the wind may carry

                              the diverted flow back to the beaches, With the cost of

                              labor and materials, it probably would be less expensive to

                              treat the material rather than move the pipes.

              Condren, A.J. and J.E. Etzel. Waste Treatment by Free Radical Oxidation.
             Great Lakes Research Division Publication #15, 1966, p. 380-388.

                                                                                       A-31

                              information for p1anni1i&-_3._3._2.A

                                   The cost for these investigations, including pilot plants,

                              would be in the range $200,000 - $250,000 per year for three

                              years. Such expenditures are justifiable in view of the need

                              for additional bathing beaches, that are not subject to being

                              closed periodically, and in the significant increase in the

                              cases of infectious hepatitis in communities that border
                              Lake Erie.1

                              Facilities or EquiRment Problems: 3.3.2.A

                                   Facilities and personnel to study the problem of tertiary

                              treatment are situated at the FWPCA Cincinnati laboratories,

                              Purdue University and several other schools with graduate

                              programs in Sanitary Engineering.

                              Penalties of Postoonement: 3.3.2.A

                                   In regards to hepatitis, there has been a dramatic
                              increase in the incidence of this illness in recent years.2

                              If measures are not taken to avoid the loading of aquatic

                              environments with this virus, which can remain virulent in

                                                       3
                              water for up to ten weeks, we are apt to witness larger

                              epidemics.

                Ingraham, H.S., by personnel communication 1968, (Dr. Ingraham is the
               Commissioner of the New York State Department of Health.)
               2McKee, J.E. and H.W.Wolf, Water Quality Criteria, (2nd ed.) California
               State Water Quality Control,Board Publicati6n- #!A;'1963, p. 548.
               3Neefe, J.R. and J. Stokes, "An Epidemic of Infectious Hepatitis Apparently
               Due to a Waterborne Agent," Journal of the American Medical Association, Vol.
               128, 1945, p. 1063.

                                                                                        A-32

                                    A staff of two senior scientistsP four assistants and

                               eight technicians should be assigned to the above problem.

                               Salaries and supplies to support such a group would amount

                               to approximately $150,000 per year. Since this type of

                               research requires an annual commitment until the task is

                               completed, it is not possible to determine the total cost.

                               Penalties of Posteonement: 3.3.2.C.-D.

                                    Until a more rapid test is formulated, those who swim

                               in the area of a sewage dis charge may be exposed to

                               pathogens. Hence a higher incidence of waterborne diseases

                               can be anticipated in the communities bordering such

                               beaches.

                                                                                               A-33

                           3.3.  All industrial wastes should receive the equivalent of secondary
                                 treatment, and those industrial wastes which cause chemical pol-
                                 lution should be either excluded from the lakes or receive a
                                 suitable high level of treatment (GLR-32) including:

                                 A.  Maximum reduction by the best available treatment should be
                                     implemented for the flowing wastes: acids and alkalies,
                                     oils and tarry substances, phenolic compounds and other
                                     organics which produce taste and odor problems, amnonia and
                                     other nitrogen compounds, phosphorus, suspended materials,
                                     toxic and highly colored materials, oxygen-demanding sub-
                                     stances, excessive heat, foam-producing compounds, and other
                                     materials which detract from aesthetics or other beneficial
                                     uses of water (GLR-32)

                                 B.  Many industries in the Lake Brie Basin need treatment facili-
                                     ties to abate pollution and to meet established water
                                     quality standards. It is recognized that many of the in-
                                     dustries named below already have substantial abatement
                                     programs underway or may have completed the necessary treat-
                                     ment facilities (LER-14):

                                     1)   The iron and steel industry should install, operate,
                                          and maintain or otherwise increase waste reduction
                                          facilities to effectively reduce taste and odor-producing
                                          substances, suspended solids, acids, oils, cyanides, and
                                          substances that cause discoloration in receiving streams,
                                          to levels that will comply with the water quality stan-
                                          dards for Lake Erie and its tributaries. This includes
                                          but is not limited to the following industries (LER-14):
                                          Michigan: Ford Motor Co. Rouge Plant, Dearborn; Great
                                          Lakes Steel Corp., Detroit, River Rouge, and Ecorse;
                                          McLouth Steel Corp., Trenton and Gibraltar. Ohio:
                                          Interlake Steel Corp., Toledo; U. S. Steel Corp., Lorain
                                          and Cleveland; Jones & Laughlin Steel Corp., Cleveland;
                                          Republic Steel, Elyria and Cleveland. New York:
                                          Republic Steel, Buffalo; Bethlehem Steel Corp., Lacka-
                                          wanna; Donner Hanna Coke, Buffalo. (LER-14).

                                     2)   The petroleum industry should install, operate, and main-
                                          tain or otherwise increase waste reduction facilities to
                                          reduce phenolic discharges to the extent that taste and
                                          odors are eliminated, and to reduce oil wastes to the
                                          extent that no oil films are visible in the receiving
                                          stream. This includes but is not limited to the follow-
                                          ing industries: Michigan: Mobil Oil, Detroit. Ohio:
                                          Sun Oil, Toledo; Pure Oil, Toledo; Standard Oil, Toledo
                                          and Lima; Ashland Oil, Findlay. New York: Mobil Oil,
                                          Buffalo. (LER-15).

                                                                                         A-34

                                   3)  The heavy chemical and rubber industry should
                                       install, operate and maintain or otherwise increase
                                       waste reduction facilities to control their dis-
                                       charges of suspended and disolved solids to comply
                                       with established water quality standards. This
                                       includes but is not limited to the following
                                       industries: Michigan: Allied Chemical Corp.,
                                       Detroit; Pennsalt Chemical Corp., Riverview and
                                       Wyandotte; Wyandotte Chemical Corp., Wyandotte.
                                       Ohio: Firestone Tire & Rubber Co., Akron; Diamond
                                       Shamrock Corp., Painesville; Midland Ross Corp.,
                                       Painesville; Reactive Metals, Inc., Ashtabula.-
                                       Olin Mathieson Corp., Ashtabula; Cabot Titanium
                                       Corp., Ashtabula; B.F. Goodrich Co., Akron; Good-
                                       year Tire & Rubber Co., Akron. New York:
                                       Allied Chemical Corp., Buffalo. (LER-15).

                                   4)  The paper, food-producing, and other allied in-
                                       dustries should install, operate, maintain, or
                                       otherwise increase waste reduction facilities to
                                       control the discharge,of suspended solids, oxygen-
                                       demanding substances, and color so that the flow
                                       from such plants meets state requirements includ-
                                       ed those for the total allocated oxygen demand
                                       load to the lake. This includes but is not
                                       limited to the following industries: Michigan:
                                       Scott Paper Co,,.Detroit; Darling & Co., Detroit;
                                       Time Container Corp., Monroe; Union Bag-Camp,
                                       Monroe; Michigan Milk Producers Assn., Peck and
                                       Imlay City; Port Huron Paper Co.9 Port Huron;
                                       Vlasic Food Products Co., Imlay City; Peninsula
                                       Paper Co., Ypsilanti; Simplex Paper Corp., Palmyra.
                                       Indiana: Parrot Packing Co., Fort Wayne. Ohio:
                                       Weston Paper Co., St. Marys; Betrice Food Co.,
                                       St. Marys; Foster Duck Farm, Montgomery Twp.;
                                       Hirzel Canning Co., Pemberville; Cuyahoga Meat Co.,
                                       Cleveland; Chase Bag Co., Chagrin Falls.
                                       Pennsylvania: Albro Packing Co., Springboro;
                                       Gunnison Bros., Girard Township; Hamermill Paper
                                       Co., Erie. New York: Welch Grape Juice, Westfield
                                       and Brocton; Seneca Westfield Maid, Westfield;
                                       Growers Coop Grape Juice, Westfield; Pro-Canners
                                       Corp, No. Collins; Gro-Packers Coop, No. Collins;
                                       Peter Cooper Co., Gowanda; Moench Tannery, Gowanda
                                       (LER-15).

                                                                                       A-35

                       3.4    Pesticides and herbicides should be applied to land in such
                              a fashion so as to minimize the amounts that reach the Great
                              Lakes as surface or subsurface ran-off (GLR-32).

                              A.   Practices to reduce drainage of tannins or tanic acid
                                   from forests and then central or neutralization should
                                   initiated.

                       3.5.   Thermal discharges should be managed in such a way that
                              water quality standards are met, and these discharges are
                              beneficially employed wherever possible (GLR-33) including:

                              A.   Reduction of thermal pollution effects where harmful;

                              B.   Use of heat from thermal effluents for improvement of
                                   naviagation, hydropower generation, and fisheries
                                   management.

                                                   COMMENTARY

                              Deficiencies in R & D.: 3.5.A.

                                   Most thermal standards for organisms were derived from

                              laboratory experiments with organisms under controlled
                              environments.1  However, there are factors, both natural and

                              introduced, that may shift the levels of thermal tolerance

                              either up or down. For example, heavy metals will decrease
                                                       2
                              the tolerance of to heat.

                                   More information should be gathered on the other

                              environmental conditions when kills due to thermal emissions

                              are noted. For the most part this would require a re-checking

                              of the literature and the gathering of additional data when

                              kills are investigated. This could most easily be handled

                              by a federal agency, such as the FWPCA.
                                            I

               `1(ennedy, V.S. and J.A. Mihursky, Bibliography on the Effect and TeMerature
               in the @quatic Environment, University of Maryland Natural Resources Institute
               5ontribution #326, 1967, p. 89.
                Lloyd, R., Factors that Affect the Tolerance of Fish to Heavy Metal Poisening,
               U.S. Public ff e--a@ItTlg-e;vr@@"VuS 11 cat 75 1t1994--W=-,71965-,-Tp. 161-1j"t.

                                                                                       A-36

                              Information for PlanniEzL: 3.3.5.A.

                                   The cost for the above 2-3 year project survey would

                              be approximately $50,000 per year for the salaries of four

                              (4) library s taf f

                              Sequencing problems: 3.3.5.A.

                                   The above research should be completed before emission

                              standards are fixed.

                                                                                             A-37

                        3.6. Teeatment of oil and other hazardous materials should be undertaken
                               so that these materials will be included from the Great Lakes
                               (CLR-33) including:

                               A.  Each municipality, port authority, or industry containing a
                                   harbor should establish procedures to prevent and control oil
                                   spillage in harbor waters (LER-16).

                               B.  Interstate and federal mobilization machinery to handle poten-
                                   tial large oil spillages in the lake proper should be streng-
                                   thened (LER!-16).

                               C.  Discussions are now underway for gas and oil exploration in
                                   Lake Erie. Shauld such drilling proceed, the oil and gas pro-
                                   ducing industry should install and operate waste elimination
                                   equipment on rigs to be used in the U.S. waters of Lake Erie
                                   to the extent that oil and other substances do not pollute the
                                   waters of the lake (LER-16).

                               D. Equipment and practices should be implemented to:

                                   1)  Reduce water pollution frmm beneficiating or refining or
                                       or ores (taconite, copper, etc.).

                                   2)  Reduce land pollution effects of strip mining, quarrying,
                                       or dumping of tailings of ore processing in spoil banks.

                        3.7. Erosion   control methods should be developed to minimize the amount
                               of sediments entering the lake including:

                               A.  Development of sedimentation basins@@where tributaries enter
                                   a lake (EAP).

                               B.  Employment of erosion control methods within the basin draining
                                   into a lake as part of agricultural operations and shoreline
                                   development activity (&@P).

                               C.  Manipulation of the shore cover to:

                                   1) Minimize erosion potential.

                                   2) Preserve scenic qualities.

                                   3) Provide vegetal uptake of septic tank effluents.

                        3.8.   Methods should be developed and applied to eliminate or reduce
                               pollution effects of solid waste disposal or land fills at edge of
                               lake, including:

                               A. Use of sanitary land fills.

                               B. Use of diking areas to be filled to prevent spreading of
                                   pollutants.

                                                                                                  A-38

                          3.9.   Alternative collection and disposal systems involving other than
                                 lake-oriented water-borne disposal systems should be developed and
                                 utilized as practical, including:

                                 A.  Export of waste out of the Great Lakes Basin to the ocean or
                                     to another drainage system.

                                 B.  Oxidation of solid particles by incineration devices.

                                 C.  Chemical decomposition, oxidation, or neutralization of waste
                                     materials.

                                 D.  Straining and precipatator devices.

                                 E.  Use of underground disposal systems, including reverse deep
                                     wellg, nuclear bottles, abandoned quarries or mines.

                          3.10. Programs of air pollution control and weather modification should
                                 be utilized to reduce pollution to the lake from atmospheric sources
                                 (e.g., rainfall) including:.

                                 A.  Development and use of pollutant-reducing fuels (fossil and
                                     non-fossil) and fuels of increased combustion efficiency.

                                 B.  Use of devices to remove harmful gaseous and particular elements
                                     from gaseous waste emissions.

                                 C.  Controlling of timing of gaseous waste emissions to coincide
                                     with favorable atmospheric dilution conditions.

                          3.11. Solid, liquid, and gaseous waste materials should be subject to
                                 reclamation treatment wherever practical.

                     4.   RECOMMENDATIONS FOR 9&D ON NON-NUTRIENT POLLUTION ABATEMENT 14EASURES

                          4.1.   Determination of the role of radioactive substances in Lake Brie
                                 pollution (LER-16).

                          4.2.   Determination of the role of pesticides in Lake Erie pollution (LER-16

                          4.3.   Determination of the effects of potential increases of thjermal
                                 pollution in Lake Erie(LER-16).

                          4.4.   R&D should be conducted in mineral extraction technologies to:

                                 A.  Reduce water pollution from beneficiating or refining or ores
                                     (taconite, copper, etc.).

                                 B.  Reduce land pollution.effects of strip mining, quarrying, or
                                     dumping the tailings of ore processing in spoil banks in the lake.

                                                                                      A-39

                    5   RECOKENDATIONS FOR R&D FOR BOTh NUTRIENT AKD 14ON-NUTRIENT POLLUTION
                        ABATEMENT MEASURES

                        5.1. R&D on the development of waste management system for Lakes Erie
                              and Superior respectively, and for the Great Lakes Region in-
                              cluding:

                              A.  Design of an integrated and coordinated program of collectinn
                                  and disDosal of solid, liquid, and gaseous wastes from muni-
                                  cipal, industrial, and agricultural sources.

                              B.  R&D to reduce costs and increase effectiveness of such systems.

                        5.2. R&D  on sewerage drainage systems including:

                              A.  R&D on technology to design, construct, and use separate storm
                                  and sanitary sewerage systems.

                              B.  R&D to utilize combined sanitary and storm and industrial
                                  sewerage systems including R&D on various storage systems to
                                  accommodate storm surges (to accommodate storm surges to pre-
                                  vent overloading sewage treatment plants and dumping untreated
                                  sewage in the lake) such as reservoirs, low-cost tanks, and
                                  bladders.

                              C.  R&D on underground disposaj- systems( nuclear bottles, deen wells
                                  or abandoned quarries or mines).

                              D.  R&D to develop effective means to reduce pollution from rural
                                  run-of f (LER-16) .

                        5.3.  R&D on new products or processing technologies which reduce waste
                              generation or pollution effects

                        5.4.  R&D for reclamation of solid, liquid, and gaseous wastes for com-
                              mercial and non-commercial uses.

                        5.5.  R&D for the design and implementation of a comprehensive waste
                              disposal monitoring system including:

                              A. Monitoring of 'liquid, solid, and gaseous waste emission into
                                  the lake (coastal zone) environment.

                              B. Establishment of monitoring systems.throughout various locations
                                  and positions to ascertain inaccurate and relative information.

                   6. RECOMMENDATIONS FOR POLLUTION ABATEMENT STANDARDS

                        6.1. Michigan, Indiana, Ohio, Pennsylvania, and Hew York should pursue
                              diligently and expeditiously:

                                                                                                    A-40

                                A.   Requirements of the enforcement conference.

                                B.   Their plans of implementation designed to aL@JieVe the water
                                     quality standards for Lake Erie.

                                C.   Additional recommendations specified in the Lake Erie Report
                                     (LER-12).

                          6.2.  In  order to protect the oxygen resources of inland streams in portions
                                of  the Lake Erie watershed, the following municipalities need treat-
                                ment at a degree greater than secondary or connection to an area-wide
                                collection and treatment system:

                                Indiana: Auburn, Decatur, Fort Wayne, Garrett.

                                Ohio: Akron, Amherat, Archbold, Attica, Bellevue, Berea, Bloomdale,
                                Bloomville, Bowling Green, Brook Park, Bryan, Carey, Cleveland
                                Southerly, Clyde, Columbus Grove, Crestline, Cuyahoga Falls, Delphos,
                                Delta, Elyria, Findlay, Fostoria, Fremont, Gibsonburg, Grafton,
                                Greenwich, Kent, LaGrange, Lima, McComb, Med      4na, Middleburg Hts.,
                                New London, New Washington, North Baltimore, North Reyalton, Norwalk,
                                Oberlin, Olmsted Falls, Ravenna, St. Marys, Spencer, Stow, Strongs-
                                ville, Tiffin, Toledo, Upper Sandusky, Van Wert, Wapakoneta, Wauseon.

                                New York:. East Aurora, Eden Twp., Hamburg Village, Gowanda (if in-
                                dustrial wastes are included), Holland Twp., North Collins.

                                By 1990, in order to pr   otect the oxygen resources of the basin, treat-
                                ment of municipal wastes at a degree geaater than secondary will be
                                necessary throughout the basin (LERI-12).

                          6.3.  Michigan,- Ohio, and Pennsylvania should adopt water quality standards
                                for intrastate streams;and these should be consistent with those
                                adopted for interstate waters. New York, Indiana have already adopted
                                intrastate standards; others are presently holding or have completed
                                hearings pursuant to the adoption of intrastate standards (LERI-12).

                          6.4.  Each of the five Lake Erie Basin '6tates should establish and maintain
                                waste discharge limits of oxygen-consuming substances as measured by
                                .the 5-day biochemical oxygen demand (BOD) test for each major drain-
                                age basin in the Lake Erie watershed sufficient to meet stream stan-
                                dards. This discharge limit should be no greater than the summa-
                                tion of the individual municipal and industrial waste effluent loads
                                that will be expected when the recommendations for treatment speci-
                                fied in this report are met(LER-13).

                          6.5.  Each of the states whould require treatment of wastes to the extent
                                that the basinwide total phosphorus discharged from municipal and
                                industrial sources will not exceed 9,000 lbs/day. This will require
                                an average reduction in the present rate of input from such sources

                                                                                                   A-41

                                 of about 90%. By the year AN, nearly complete removal of phos-
                                 phorous from municipal and industrial wastes, together with sub-
                                 stantial reduction in the phosphorus contributinn from run-off, will
                                 be required to accommodate projected population increase.

                                 No cities presently treat to this level in the Lake Erie watershed
                                 although it is recognized that the states are.embarking on a pro-
                                 gram to require treatment (LER-13).

                      7. RECONMENDATIONS FOR R&D IN SETTING AND CONTROLLING STANDARDS FOR POLLU-
                          TION ABATEIIE14T

                          7.1.   R&D to review water quality standards which have been established
                                 or are being established by appropriate authorities for the pur-
                                 pose of providing information useful to those authorities in re-
                                 fining or revising the standards, (FWS) including:

                                 A.   Examination of   water quality trends in relation to present uses
                                      and potential changes in the future.

                                 B.   Development of conclusions as to the urgency of water quality
                                      problems in each hydrologic sub-area of the Great Lakes Basin
                                      (and more particularly, of the sub-basins of Lake Erie and Lake
                                      Superior) and give general cost estimates for broad components
                                      for the action needed (FWS).

                          7.2.   R&D  to identify water quality problems as to nature, location, and
                                 gravity (FWS) in the drainage basins of 'Lake Erie and Lake Superior.

                          7.3.   R&D to define in general terms the actions needed to maintain or
                                 improve the quality of streams, lakes, and aquifers of the Great
                                 Lakes Basin (FWS), particularly with regard to Lakes Erie and Superior

                          7.4.   P..&D to establish meaningful control standards including:

                                 A.   Tolerance levels to various pollutants by human, animal, and
                                      plant species.

                                 B.   Delineation of reaches of streams where increased low flows
                                      and/or decreased waste loads are indicated for water quality
                                      improvement (74S).

                                 C.   Socio-Ecortomic values affected by the standards.

                          7.5.   R&D  on the effectiveness of legal or regulatory control measures
                                 in producing desired results with relative ease in administration
                                 or cost.

                          7.6.   R&D to translate the economic projections and water-use data into
                                 accompanying waste loads and determine the needs for waste treatment
                                 and other measures for dealing with water-borne wastes under condi-
                                 tions of development projected for 1980,2000,and 2020 (FWS).

                                                                                          A-42

                        7.7. R&D to @-apprajse the effectiveness of present practices in the
                               treatment and disposal of water-borne wastes and determine the
                               water quality control needs under current conditions to alterna-
                               tive measures for meeting these needs -where appropriate (FWS).
                                                      Cy

               II. RESTORATIVE '11EASURES

                     0.        2NDATIONS FOR RESTORATION MEASURES FOR THE GREAT LAKES (Lake
                         PECOrV
                         Erie, in particular)

                         8.1. Removal of sediments by-

                               A.  Dredging methods.

                               B.  Mixing and then pumping. to a separation device (GLR-43).
                                   (It would probably be most feasible to perform these tasks
                                   in segmented areas of the lake so disturbed sediments will
                                   not redeposit in previously treated areas.)

                         8.2. Sealing of sediments, thus preventing nutrient interchange into
                               the overlying areas including:

                               A.  Development of a sealing material having the characteristics
                                   of:

                                   1)  Insolubility.

                                   2)  Non-toxic.

                                   3)  Biological stability.

                                   4)  Easy to apply undler water.

                                   Potential materials that could be used are biologically stable
                                     I
                                   Pi.astics or polymeric ommpounds.

                               B. Diking so disturbed sediments will not redeposit on top of
                                   previously sealed areas (GLR-A4).

                         8.3. Prevention of thermal stratification which results in oxygen de-
                               pletion which, in turn, contributes to increased nutrient inter-
                               change at the sedinent-water interface by:

                               A.  Locating thermal power plants, both conventional and nuclear,
                                   in such a manner that their discharge outfalls induce mixing
                                   that inhibits stratification (GLR-44).

                                   (Whether or not this can be accomplished with existing plants
                                   is speculative. However, Lake Erie could purposely be desig-
                                   nated as a power plant center;and new power plants in the Mid-
                                   west could be located on Lake Erie to aid in such a destratifi-
                                   cation effort.)

                                                                                        A-43

                              B. Regulating flows and currents in selected areas to stimulate
                                  vettical mixing of waters.

                              C. Placement of heat generators at selected bottom locations to
                                  cause vertical convestion currents.

                        3.4. Flushing with low-nutrient water (GLR-42)

                              A.  Because of the very large size of the Great Lakes, flushing
                                  with low-nutrient water is not feasible using water within the
                                  Great Lakes Basin alone. Hm-iever, several continental water
                                  plans under study could add significant amounts of this type
                                  of water to the Basin (GLR-42).

                              B.  It would be highly appropriate to determine what the effects
                                  of these continental water plans would be for the Great Lakes
                                  Basin, and efforts should be made to incorporate concepts de-
                                  signed to restore water quality early in the planning stages
                                  (GLR-42).

                        8.5. Collection and removal of algae and harvesting of aquatic weeds
                              which cover large areas of Lake Erie and concentrate along the
                              shoreline during certain periods of the year (GLR-42).

                              A.  Some difficulty has been encountered in the past because of
                                  equipment constraints, mainly algae fouling during the separ-
                                  ation step, and the fact that present equipment functions nnly
                                  over small areas. If this technique is to be used on large
                                  scale, these problems must be overcome (GLR-42).

                              B.  Algae and aquatic weeds should be disposed in a fashion so
                                  that nutrients will not re-enter the lakes (GLR-42).

                        8-6-  Development and use of an Algacide

                              The development of an algacide for selectively controlling blue-
                              green algae would be beneficial to the restoration of Lake Erie.
                              Because of presently limited knowledge, considerable effort might
                              be required to discover an algacide capable of blue-green algae
                              control without having marked effects on the total ecological bal-
                              ance of the lake (GLR-42).

                        8.7.  Development of predators, parasites, or viruses specific for aquatic
                              plants

                              A.  Predators, parasites, or viruses which are specific for blue-
                                  green algae and rooted vegetation can be used for restoration.
                                  This method also is not well defined and could entail consid-
                                  erable developmental 'work. The ecological balance could also
                                  be affected by this measure, and there should be adequate as-
                                  surance that secondary effects are not adverse (GLR-43).

                                                                                                  A-44

                                 B.   Development of species of zooplankton ton consume algae,
                                      and a species of trash fish to use the large supply of
                                      zooplankton as food and, thereby, support commercial fish-
                                      ing activity for fish meal production. Equipment is also
                                      being developed to harvest Antarctic krill -- a species of
                                      larger zooplankton -- and which could also be utilized in
                                      Lake Erie if asimilar zooplankton species could be developed
                                      and established.

                          8.8.   Use of substances which interfere with light penetration

                                 Algae growth can be impeded by the addition of a substance which
                                 interferes with light penetration. This substance must be non-
                                 toxic, biologically stable, and non-restrictive to oxygen trans-
                                 fer. The substance has yet to be discovered and likely would
                                                                                                 rq
                                 entail considerable research. Problems with ecological irbalances
                                 could be severe in this case also (GLR-43).

                          8.9.   Use of divalent cation chelating agents to inhibit blue-green
                                 algae proliferation

                                 Since divalent cations serve as co-enzymes in algae growth, di-
                                 valent cation chelating agents could be used to inhibit blue-green
                                 algae proliferation. Ecological consequences must be considered.
                                 Biologically stable chelators are now available, and some may be
                                 suitable for this proposed use. Assuming that the chelator sel-
                                 ected is readily soluble, it could be broadcast aerially to af-
                                 fected areas in the lakes. Full knowledge of critical inhibitory
                                 concentrations of chelating agents, mixing parameters, and dispersal
                                                                                              -43'
                                 effects must be available prior to implementation (GLR

                      9. RECOMWDATIONS FOR R&D IF THE RESTORATION OF LW.E ERIE

                          9.1.   R&D to determine the exact role of Lake Erie bottom sediments in
                                 the overall chemistry of the lake (LER-16).

                          9.2.   R&D for developing effective means to prevent the formation of
                                 oxygen-deficient zones in mid-Lake Erie (LER-16).

                          9.3.   R&D to develop effective means to restore the Lake Erie fishery
                                 (LER-16).

                          9.4.   A detailed conomic analysis should be undertaken to identify the
                                 quantifiable benefits that would accrue for various levels of im-
                                 provement in the quaiity of the Great Lakes resources and the as-
                                 sociated costs of achieving these levels including: (GLR-6)

                                 A. Consideration of foreign benefits if resources management prac-
                                      tices are not improved (GLR-6).

                                                                                        A-45

                               B.  Consideration of all significant aspects including domestic,
                                   municipal, and industrial water supply, power, irrigatinn,
                                   agriculture, watErshed.raangement, recreation, aquatic re-
                                   sources including commercial and sport fisheries, and navi-
                                   gation including pleasure boating (GLR-6).

                                   (Without the knowledge that such an analysis would provide,
                                   t1he most desirable and justifiable level of water quality
                                   remains a matter of coajecture and debate*. and any restoration
                                   program would lack direction and a defensible goal (GLR-6).

                                                                                        B-1

                                                   APPENDIX 13

                               GENERAL CATEGORIES OF WATER POLLUTION SUBSTANCES

                          Water polluting substances may be classified into eight general

                          categories, each of which is somewhat unique in polluti.onal

                          characteristics and effects:

                          1. Oxygen Demanding Wastes--the traditional organic wastes

                              contributed by domestic sewage and industrial waste of

                              plant and animal origin (food processing, papermill,
                              vegetable tanning, etc.). During dewition in water,

                              these wastes consume the dissolved oxygen required by

                              fish. When all oxygen is thus consumed, septic conditions

                              result.

                          2.  Infectious Agents--disease-causing organisms which are

                              carried into surface and ground water by sewage from

                              municipalities, institutions and sanitariums, and by

                              certain industrial wastes such as tannin-, and slaughter-

                              houses. These wastes may transmit the microbes causing

                              enteric (e.g., typhoid fever) and viral diseases.

                          3.  Plant Nutrients--principally nitrogen and phosphorus

                              contributed by sewage, certain industrial wastes and

                              drainage from fertilized lands. These stimulate growths

                              of water plants, such as algae, causing disagreeable

               1Based on definitions presented in "Causes and Extent of the National
                                        If
               Water Pollution Problem , Division of Water Supply and Pollution
               Control, Public Health Service, U.S. Department of Health, Education and
               Welfare, fromWat=_.Fp1l_utjQn_.. C_"n                 Part 1A-National
               Survey,.included in Hearings Before a Subcommittee of the Committee on
               Government Operations, House of Representatives, 88th Congress, First
               Session, May 21 - June 5, 1963.

                                                                                        B-2

                               conditions and, upon their death and decay, causing

                               secondary oxygen consumption. Such plant nutrients are

                               not removed by biological waste treatment which on the

                               contrary, makes them more usuable by plant life.

                          4.   Synthetic Organic Exotics--a new category including

                               household detergents, synthetic organic pesticides, a

                               variety of synthetic industrial chemicals and the wastes

                               from their manufacture. These rapidly augmenting

                               pollutants, which are extremely resistant to conventional

                               waste treatment, cause undesirable effects on waterfor

                               human use and are believed toxic to aquatic life--and

                               possibly humans. Much more needs to be known about the

                               toxicity of these products and methods of treatment and/

                               or control.

                          5.   Inorganic Chemical and Mineral Substances--includes a great

                               variety of mineral and inorganic wastes (metals, metal

                               salts, acids, and solid particles) resulting from mining,

                               manufacturing processes, oil field operations, agricultural

                               practices, and natural sources. These materials may inter-

                               fere with natural stream purification; destroy aquatic life;

                               cause excessive hardness, corrode expensive water treatment

                               and industrial equipment, and concrete or steel structures;

                               and increase the costs of treating water and maintaining

                               watercraft. Some of the metals and their compounds--e.g.,,

                               lead and cyanides--are known to be toxic.

                                                                                       B-3

                         6.   Sediments--inorganic particles of soil$, sands, and

                              mineral matters washed from the land and from hard surfaced

                              areas (streets, buildings, airports, etc.). While not

                              so insidious in pollutional characteristics as other

                              agents, sediments cause major problems from their sheer

                              magnitude, filling stream channels, harbors and reservoirs,

                              eroding power turbines; reducing fish and shellfish popula-

                              tions by blanketing action; reducing sunlight penetration

                              required by oxygen producing plants, and increasing costs

                              of water use and treatment.

                         7.   Radioactive Substances--results from the mining and pro-

                              cessing of radioactive ores; from the use of refined radio-

                              active materials in power reactors, and for industrial,

                              medical, and research purposes, and from fallout following

                              weapons testing. Now at a low level due to careful controls

                              at the sources and the nuclear test bar., the increased

                              use of radioactive substances for a variety of nonmilitary

                              purposes poses a serious potential public health problem,

                              physiologically. The problem can be contained by careful

                              controls affecting the total human environment of which

                              water is an important element.

                         8.   Heat--great volumes of heat are added to water used for

                              cooling purposes by steam-electric powerplants, steel mills,

                              petroleum refineries, petro-chemical plants, and other

                              industries. Heat returned to lakes, streams and coastal

                              waters has the effect of a pollutant because it reduces the

                              solubility of oxygen in water and thus its ability to

                                                                                       B-4

                              assimilate oxygen-consuming pollutants and to support

                              fish and aquatic life. It also has direct detrimental

                              effect on fish sensitive to temperature and can virtually

                              eliminate normal aquatic life. A second source of heat

                              in water is reservoir storage during summer months,

                              causing stratification of waters with the cooler lower

                              layers.becoming oxygen deficient before passing through

                              lower gates of a dam with ill effects on water quality

                              downstream.

                                                    APPENDIX C

                   RECOMMENDATIONS OF THE TASK FORCE ON ENVIRONMENTAL HEALTH A1,TD RELATED PROBLEMS

              excerpted from! A Strategy for a Livable Environment, U. S. Department of Health,

              Education, and Welfare, Washington, D. C., June 1967, pp. xviii - xix.

              STRATEGY

                   To protect man from.the adverse effects of environmental change, the Department
              of Health, Education and Welfare needs to know the problems, measure them devise
              means to solve them and obtain compliance with regulatory standards. If this
              approach is to be successful, there must be an adequate supply of competent man-
              power, and a public awareness of the dangers. All of this can be accomplisoed
              through an Environmental Protection System. The Task Force believes that the Dep-
              artment will be able to cope with environmental health problems of the future by
              implementing the following recommendations.

                   We recommend that the Department:

                   Establish a surveillance and warning program which will, through basic research,
              identify current and potential problems, and determine the effect of these prob&ams
              on man, thus giving the Department the continuing supply of scientific knowledge
              necessary to protect man from environmental injury and aesthetic insult.

                2. Establish an environmental design program which will establish criteria and
              dual-level standards for individual hazards and combinations of hazards under
              varying conditions of geography, population, Industrialization, economics, and
              technology, with one level being the minimum health level acceptable and the other
              being a desirable level which can be achieved in a specific number of years.

                3. Establish a technological development program using contracts-with industry in
              conjunction with Departmental activities and grants to institutions so as to bring
              about the technological improvement necessary to reach the desirable environmental
              quality levels.

                4. Establish an inter-governmental compliance program using Federal functionally
              orientated grants-in-aid free of formula and allocation restrictions in conjunction
              with Federal technical assistance teams to obtain comprehensive plans and action
              from State and local governments consistent with national goals and objectives.

                   If this Environmental Protection System is to succeed, specific immediate
              objectives need to be reached.

                   The Task Force recommends:

                1. Development by 1970 of a nationwide surveillance system necessary for identifying

              levels of pollutants and components of pollutants in air, water, and soil.- (Chapter
              III, page 34)

                2. Establishment by 1970 of criteria for individual and combinations of chemicals
              discharged into air, water, or soil.

                3- R@quir@ by 1969 the filing of five-year comprehensive en-@?ironmental-'health plans
             .from State and local governments receiving funds from the Department,

                4. Creation by 1968 of a permanent technical assistance unit within the Department
              which can provide multi-disciplined teams of specialists to be available to State
              and local governments at their request to aid in planning and implementing
              environmental health programs.

                5. Determination by 1969 of the manpower requirements necessary to adequately
              supply both public and private sector needs for environmental program operations
              beginning in 1972 and beyond, and the means of supplying such needs. -

                6. Establishment by 1968 of an integrated effort for health education and general
              education to create a public understanding of Its environment and an increased
              awareness of the individual and social respondibility, in reference to it.

              OTHER RECOMEMATIONS:

                   The foregoing recommendations deal with goals and strategy. In addition,
              however, are the following recommendations which relate to the goals and the
              protection system. Those having the highest priority are listed here.

                   The Task Force recommends the Department:

                1. Urge the President to call a White House Conference on Financing Local
              Government to explore ways for cities and other units of local government to raise
              adequate funds to finance essential governmental activities on a metropolitan
              and regional scale.

                2. Urge the President to seek Congressional authorization to create a Council of
              Ecological Advisors to provide an overview to assessment of activities in both the
              public and private sectors affecting environmental change, and to act in an
              analyzing capacity, to be in a commanding position to advise on critical environ-
              mental risk/benefit decisions, and finally to be instrumental in the shaping of
              national policy on environmental managmant.

                3. Seek authority to provide air pollution program grants only to those control
              agencies which develop emergency plans that would control combustion activities
              under certain air pollution alert conditions.

                4. Accelerate within the Department of Health, Education, and Welfare a national
              family planning program to disseminate family planning information to all requesting
              State and local health agencies, physicians, private associations, and individuals.

               5. Develop urban and rural model codes and suggested standards for the prevention
             and control of various sources of noise in the environment.   Chapter 11, page 19)

               6. Contract with appropriate universities and/or research institutions for the
             establishment and operation of a facility for large scale, long term, health
             related studies in human acology.

               7. Undertake a grants program for the establishment and support of university-
             based centers for ecologically"orientated environmental health studies.

               8. Create through contracts a non-profit research organization using experts in
             a wide variety of fields to respond exclusively to the Department's need for
             problem-solving in the health and environmental health areas.

               9. Establish an Office of Assistant Secretary for Research and Development so that
             activities within, or supported,by, the Department are integrated into a total systems
             approach and provided with overview, direction, and control.

               JO.Provide grant-in-aid or contract support for the establishment and operation
             of urban sociological health research centers in major metropolitan areas.

               II.Establish units of the Department of Health, Educhtion, and Welfare in other
             Federal agencies to provide liaison to those agencies and an assessment of the effects
             of their programs on man's environmental health and welfare.

               12.Provide fellowships for in-service training and continued education for
             Departmental personnel in the environmental health field.

               13.Promote the establishment of programs and curricula in clinical and human
             ecology through grants to the Nation's professional schools, such as schools of
             medicine,, law, public health, and public administration.

              14. Provide fellowships for State and local personnel to permit them to continue
             their education in environmental health fields.

                                                                                         D- I

                                                APPENDIX D

                                  Summary of Pollution Control Legislation
                                  for State Contigious to Lake Erie and
                                             Lake Superiorl

                                                  MICHIGAN

             Water

             Legislation:Act 245, Public Acts of 1929, as amended Act creates 7-member Water
             Resources Commission. Defines unlawful pollution and authorizes Commission to
             establish water quality standards and control pollution. Local governments made
             responsible.for resident sewage. Specifies cooperative duties for control of
             floods, beach erosion and stream gaging.

             Agency powers: 1. Issue orders. 2. Restrict new disposals. 3. Enforce laws.

             Standards submitted j_q I%TPCA, approved April 17, 1968, except for temperature
             increases allowed.

             Penalties: $500 each day of violation.

             Tax relief: Exemption from personal Property and sales taxes for industrial pollu-
             tion control facilities.

             Assistance:For alternate methods of solving pollution problems.

             Further information: Water Resources Commission, Dept. of Conservation, Station B,
             200 Mill Street, Lansing, Mich. 48913.

             Air

             Legislation: Air Pollution Act, Act 348, 1965. Act establishes a 9-member Air
             Pollution Control Commission, 6 citizens and 3 State Dept. employees. Purpose:
             adopt rules and regulations; set up violation and variance proceedings; provide
             penalties.

             Agencv-powers; 1. Set standards and limits. 2. Compel compliance. 3. Pevelop plans.

             Penalties: Up to $500 plus $100/day for each additional day.

             Tax Relief: Tax exemptions from state and local taxes for air pollution control
             equipment.

             Further Information: Div. of Occupational Health, Michigan Dept. of Health, Lansing,
             Mich.
             1
              #'State Regulations," Chemical Engineering, October 14, 1968, pp.25-48.

                                                                                          D-2

                                                  MINNESOTA

              Water

              Legislation: Minnesota Laws 1945, Ch. 395; Extra Session Laws, 1961, Ch. 20;
              Laws, 1963, Chap. 874; Laws, 1967, Chap. 882. Laws -gve Pollution Control Agency,
              formerly Water Pollution Control Commission, authority over water pollution and
              the problems of solid waste disposal. Water quality standards to be set both for
              effluent content and purity of receiving stream.

              Agency powers: 1. Set quality standards. 2. Inspect plans. 3. Issue permits. 4.
              Enforce compliance. 5. Issue orders. 6. Assume municipality powers to construct
              disposal system and levy taxes.

              .Standards submitted to WPCA, approved conditionally, June 18, 1968.

              Penalties: Inju nction. $100 or 90 days in jail.

              Tax Relief: Device installed solely for anti-pollution purposes will not be taxed
              either as personal property or realty improvement.

              Assistante: Consultations and interpretations, all with technical people.

              Further information: Minnesota Pollution Control Agency, 459 Board of Health
              Bldg., University Campus,Nilinneapolis, Minn. 55440.

              Air

              Legislation: Chapter No. 882, S. F. No. 845, Minnesota Statutes 1967, May 1967.
              Law establishes a Pollution Control Agency responsible for Air and Water
              Pollution Control, Solid Waste Disposal, and Land Use Planning where such  use
              increases pollution control problems. Agency may adopt, amend or rescind   reg-
              ulations and standards for prevention, -abatement or control of pollution.
              Standards may relate to emissions or ambient air. Division of Air Quality
              formed to establish standards.

              Agency powers:May enforce standards and regulations by injunction, action to
              compel performance or other action in district court of any county where
              provision is effective.

              Penalties: Imprisonment of 90 days or $100 fine. Each day a separate off#-nse.

              Tax Relief: Installations solely for control of air pollution are exempt from
              real or personal property taxes.

              Assistance: Available soon. Chief of division is a registered P.E. and more
              engineers are being hired.
              Further information: Minnesota Pollution Control Agency, 459 State Board of Health
              Bldg., University Campus, Minneapolis, Minn. 55440.

                                                                                         D-3

                                                 NEW YORK

             Water

             Legislation: New York State Public Health Law, Article 12, 1954. Law declares
             public policy of State to maintain reasonable water purity standards consistent
             with public health and enjoyment, protection of fish and wildlife and industrial
             development, and to require use of all known and reasonable methods to prevent
             and control pollution in State waters.

             Agency powers: 1. Hold hearings. 2. Issue orders. 3. Issue extend, deny,revoke
             or modify permits. 4. Conduct investigations.

             Standards submitted to WPCA, not approved yet.

             Penalties: Injunction. Fine of $100-500 per day of violation.

             Tax relief: Tax exemptions after approval and inspection by Health Dept.

             Also a member of Interstate Sanitation Commission, Ohio River Valley Water
             Sanitation Commission, New England Interstate Water Pollution Control Commission,
             Interstate Commission on Lake Champlain Basin, Delaware River Basin Commission.

             Further information: New York State Dept. of Health, Office of Counsel, 84 Holland
             Avenue, Albany, N. Y. 12208.

             Air

             Legislation: Article 12-A, Public Health Law, April 1957. Law establishes 9-member
             Air Pollution Control Board. Purpose: To adopt and promulgate regulations. Also
             provides for Commissioner of Health and staff. Purpose: To enforce regulations
             and carry out control program.

             Agency powers: 1. The Board can determine degree of pollution and emission
             standards. 2. Prepare a plan for pollution control and abatement. The Commissioner
             san 1. Conduct studies and research. 2. Conduct demonstrations. 3. Provide training
             f acili ties and staf f - W. Re"ceiv&.,.-qonies.. 5. Consider and approve plans and spec-
             ifications. 6. Inspect premises.

             Penalties: Fine of $1,000 plus $200 each additional day.

             Tax relief: Yes, for certified pollution control equipment only.

             Assistance: To local air pollution programs, but not to pollutors.

             Further information: Division of Air Resources, New York State Dept. of Health,
             84 Holland Avenue, Albany, N. Y. 12208.

                                                                                         D-4

                                                    OHIO

              Water

              Legislation: Water Pollutiun Control Act, Sec. 6111.01 through 6111.40, 6111.99,
              Ohio Revised Code, 1951. Amended 1953, 1965, 1967. 1951 Act created a Water
              Pollution Control Board with administrative,regulat6ry and quasi-judicial powers.
              1967 amendment gives six members.

              ftency powers: 1. Conduct research, education and investigation. 2. Enforce
              programs. 3. Require construction or modification of sewage or waste disposal
              systems. 4. Suspend construction. 5. Obtain Injunctions.

              Standards submitted to WPCA, approved with exceptions, March 4, 1968.

              Penalties: $500 and/or.one year imprisonment.

              Tax Relief: Certificates of exemption from personal, property, franchise, sales
              and use taxes for approved water pollution control facilities.

              Assistance: Conferences, operator schools.

              Also a member of Ohio River Valley Water Sanitation Commission, Great Lakes
              Commission.

              Further information: Ohio Water P611ution Control Board, P. 0. Box 118 * Columbus,
              Ohio 43216.

              Air

              Legislation: Sections 3704.01 to 3704.11 inclusive and Section 3704.99 of Ohio
              Revised C     Enacted as Amended Substitute House Bill 689, Aug. 10, 1967.
              Effective date Nov. 24, 1967. H. B. 689 established within the Ohio Dept. of
              Health a 5-member board, the Ohio Air Pollution Control Board. Purpose: to
              develop programs for prevention, control and abatement of pollution; P3
              develop a plan to control air pollution from state-operated facilities; to
              advise, consult and cooperate with other agencies; to accept and administer
              grants; to obtain necessary technical services; and to employ, compensate
              and prescribe duties and powers of personnel.

              Lgency powers: 1. Prescribe ambient air quality and emission standards. 2. Con-
              duct studies, investigations and research. 3. Conduct monitoring. 4. Require per-
              sons responsible for pollution sources to file reports on emissions. 5. Reoire
              submission of plans. 6. Issue conditional permits for emissions in excess of
              standards complete with control recommendations and time table:for compliance.

              Penalties: Injunctive relief and/or $500 per offense upon conviction. Each day
              is a separate offense.

              Ohio (continued)                                                            D-5

              Tax Relief: Exemption from franchise, real property, use and sales taxes offered
              to qualified facilities.

              Assistante: Available for development of control programs, wiiting of regulations,
              training of personnel, analytical service, field studies and single source
              investigations.

              Also a member of Ohio-West Virginia Insterstate Compact, which is awaiting U. S.
              C(nigressional action.

              Further information: Ohio Dept. of Health, P. 0. Box 118, Columbus, Ohio 43216.

                                                                                           D- .5

                                                 PENNSYLVANIA

               Water

               Legislation: Clean Streams Law, 1937, P. L.1987(as. amended), 35T.S. Par. '69L1
               et seq. Law forbids discharge of industrial or sswage wastes into State waters.
               Objective is not only to prevent further pollution, but lo restore to a clean
               state every stream in Pennsylvania that is now polluted.

               Agency powers: 1. Require discharge permits. 2. Set treatment standards. (Sani-
               tary Water Board).

               Standards submitted to WPCA, approved May 21, 1968.

               Penalties: $100-5,000 plus imprisonment up to one year.

               Also a member of ORSANCO, Interstate Commission on the Potomac River, Delaware
               River Basin Commission, Great Lakes Commission, International Joint Commission.

               Further information: Sanitary Water Board, Pennsylvania Dept of.Health, P. 0.
                   90, Harrisburg, Pa. 17120.

               Air

               Legislation: Air Pollution Control Act, January 1960, as amended, Act establishes
               Air Pollution Commission and Air Pollution Control Associations In regions
               designated by Commission. Commission is regulatory agency, Health Dept. receives
               and investigates complaints, conducts surveys and testing programs, issues and
               enforces orders.

               Agency powers: 1. Commission adopts rules and rugulations. 2. Health Dept.
               enforces these orders.

               Penalties: Fine up to  $500 or imprisonment from 10-30 days.

               Assistance: Staff available on request for consultation and/or assistance in
               design or development.

               Further information: Div. of Air Pollution Control, Penna. Dept. of Health, P.O.
               Box 90, Harrisburg, Penna. 17120.

               1: A bond issue will be voted on for $335 million for water pollution control
                  support and $100 million for recreation.

                                                                                     D- 6

                                                  WISCONSIN

              Water

              Legislation: Water Resources Act, Chap. 614. Laws of 1965; Air Pollution and Solid
              Wastes Disposal Control, Chap. 83, Laws of 1967. Act centralizes program authority;
              establishes shoreland and flood plain zoning requirements; makes certification of
              waterworks and sewage treatment plant operators mandatory; sets up a state financial
              assistance program for municipal construction; strengthens enforcement; authorizes
              water quality standards. The solid wastes disposal act authorizes establishment
              of state standards with control of disposal and incineration through licensing.

              Agency powers: 1. Monitor surface water quality. 2. Conduct stream surveys. 3.
              Hold hearings. 4. Issue orders. 5. Approve plans. 6. Disburse State and Federal
              aid. 7. Issue licenses and permits.

              Standards submitted to WPCA, approved January 1968.

              Penalties: Up to $5,000 each day of violation.

              Tax relief: One-year amortization on pollution abatement facilities. Permanent
              exemption from real estate taxes for equipment.

              Assistante: Five regional offices staffed by engineers, sanitarians and biologists
              provide on-the-scene advisory services. Review of all plans by Division prior to
              construction.

              Also a member of Great Lakes Basin Commission. Resolutions adopted in conjunctton
              with all neighboring states.

              Further information: Div. of Resources Development. Dept. of Natural Resources,
              State Office Bldg. I W Wilson St. Madison, Wis. 53702

              Air

              Le_gislation: Chap. 83. Laws of 1967, enacted August 1967. Law authorizes State
              to adopt state-wide air pollution standards and enforce laws, establish standards
              governing solid waste disposal sites; creates air pollution advisory council.

              Agency powers: 1. Issue orders and emergency orders related to abatement of air
              pollution. 2. Render technical assistance, advice and counsel. 3. Encourage
              county wide air pollution control.

              Penalties: $5,000/day, each day.

              Tax relief: Air pollution control facilities are exempt from local taxation, subject
              to agency approval.

              AssistanceZ At regional office level by regular contact. Central office reviews
              plans and determines compliance.

              Wisconsin (continued)                                                        D- 7

              Further information: Div. of Environmental Protection, Dept. of Natural Resources,
              State of Wisconsin, Madison, Wisc.

              .l.. A $200 million bond plan is to be voted upon in April of 1969, of which
              aDout$144 million is scheduled for,municipal sewage conttruction, and the
              remainder to be used for recreation development.

                                                                                   APPENDIX          -,E-

                                    C TUFUREM       RTTERENCE        CALLING        FO'R   AN    INURMATIONhL             JOIDIT C011AISSION
                                REP7,@T     ON   F 0   LTU -T 10 N I 11T L-"=, i  KU E I- LAITLE      1)1,,,C;ARIO AND             INTERINATI-MNAL
                                                                           N OF TILFD ST.                          RIVER
                                                                SECTIO

                                    "I    have the honor             to    inform you that              the Goveriyqents of                the United
                           States        and   Canada have           been informed that                 the waters of Lahe                Brie, Lake
                           Ontario and. the international section of the St. Lawrence River are being
                                                                                                                           -ito these waters.
                           poL ted by sewage                  and industrial waste discharged ii                                                 k,
                           Having in raind the                provision of Article IV of the Boundary Waters Treall-y
                         .signed January 11,                  1909, that boundary waters and waters flowing az!ross
                           the bounftary shall                not be polluted on either side to the, injury of health
                           or property on the                 other side, the two Governments ha-ve agreed upon a
                           joint Reference of                 the matter to the International Joint Co=iss-ion, pur-
                           suant to the provisions of Article IX of said Treaty. The commission is
                           requested          to inquire into and to report to the two Goverr-ments upon the
                           f ollowi ii@g      questions:

                                    (1)       Are the waters of Lake Erie., Lake                           Ontario        and the        international
                                              section of the St. Lawrence River being polluted on either side of
                                              the bou7idary to an. extent which is causing or is 11.1cely to cause
                                                                                  pro         -y on the other             side of        the boundary?
                                              in,@urdr to. health or                   -pert
                                    (2)       If the foregoing question is answered in the affinilative, to ifnat
                                              extent, by what cau-ses, and in what localities is such pollution
                                              taking place?

                                              If the CommissLon should find that pollution of the character just
                                              re-ferred to is taking place, wha-'C. remedial measures would, in its
                                              Judggient, be -most practicable from the economic, sanitary and other
                                              points of view and -,fhat would lbe the probable cost thereof?

                                                                                   -es'ieation and             athen-yis,@ in the performance
                                       In   the conduct of its inN, U                                                                               I .
                           cf   its duties under this Reference, the Coiiinission may utilize the services
                           of   eingineers and other specially qualified personnel of the technical agen-
                           cies of the-United States and Canada and will so far as possible mahe use
                           of inforEiation and, technical data heretofore acquired or which may become
                           available during the course of the investigation.

                                    "The two Governmcnts are also a@-;reed on the desirability o-f                                                 extending
                                                                                                                                                                 I-,
                           this Reference to other boundary waters of the Great Lakes Basin                                                       at an ap-
                           'propriate ti,-_,-@e. The Cor=,,,ission is requ6sted to advise the Governments when,
                           in its oj@inilon, such action is desirable.

                                    "The Coinuission should sta-,mit its report a.                                id reico,-=endations to the
                           two Goverr-Lnents as soon as practicable."

                                                                                             AP.PENDIX   F
                                                     GENERAL U.S. SHORELINE USE OF LAKE ERIE'AND                  LAKE SUPERIOR.          1966
                                                    .Including Niagara, Detroit, and St. Clair Rivers and Lake St.                        Clair
                                                                                               (in miles)
                                                                   Total        Indus'  Com- Res-           Res-       Agric.
             LAKE ERIE                                             Length       trial   mer- iden-          iden-      and         Fish      Rec
                                                                    of                  cial tial           tial       Silvj-       &        (Fe
                                                                'Shoreline                      (Seas.)     (Perm.)    cult..    Wldlfe      Sta
             NEW YORK
              Niagara County
               Niagara River
                Mainland                                           25.25        0.90      5.00    0.60       5.50       ---                    8.
                Cayuga Island                                       3.00                                     2.40       ---
                Tonawanda Island                                    1.70        1.10      0.60    ---        ---        ---        ---
              Total Niagara County                                 29.95        2.00      5.60    0.60       7.90                              8.
              Total Percentage for Niagara County                  (100%)       6.7     18.7      2.0       26.4                             28.

              Erie County
               Niagara River
                Mainland                                            6.00        2.80      0.50    ---        ---        ---        ---
                Grand Island                                       23.60        ---     12.50     0.70       2.30       ---        ---         5.
               Lake Erie                                           29.82        3.86      5.37    3.18       5.40       0.10       ---         0.
              Total Erie County                                    59.42        6.66    18.37     3.88       7.70       0.10       ---         6.
              Total Percentage for        Erie County              (100%),-     11.2    31.0      6.5       1.3.0       0.1        ---       10.

              Chautaqua County          Lake Erie                  41.08        0.60      3.15    4.091.     3.26       6.20       ---         1.
              Total Percentage for Chautaqua Cty..                 (100%)       1.5       7.8    10.0        8.0       15.1        ---         3.

             TOTAL NEW YORK                                        130.45       9.26    27.12     8.57      18.86       6.30                 16.
             TOTAL PERCENTAGE FOR NEW YORK                         (100%)       .7.1    20.8      6.6       14.5        4.8        ---       12.

             PENNSYLVANIA
              Erie County        Lake Erie                         48.35        1.75      0.93    4.41       5.01       4.03                   7.
              Total Percentage for Erie County,AED                 (100%)       3.6       1.9.    9.1       10.5        8.3        ---       16.
           .TOTAL FOR PENNSYLVANIA

             OHIO
              Ashtabula County - Lake Erie                         26.75        1.80      1.98 4.19          4.03                              0.
              Total Percentage for Erie County                     (100%)       6.7       7.4 15.7          15.1                               3.

              Lake County - Lake Erie                              30.30        3.45      0.24 2.80          8.78       1.00       ---         0.
              Total Percentage for Lake County                     (3.00%)      11.4      0.8 -9.2          29.0        3.3                    2.

              Cu yahoga County - Lake Erie                         29.27        1.00      8.57    ---       14.26       ---
              Total Percentage for tuyahoga Cty.                   (100%)       3.4     29.3      ---       48.7        ---

                                                                              -2-

                                                          Total
           LAKE ERIE                                      Length                                           Ag.    Fish      Rec
                                                             of                     Resid-Resid.            &    ... (Fe
                       (Continued)                      Shoreline Indst.*    Comm. (Seas.)'@Perm-') SilVdt.      Wldlfe *Sta
            Lorain County - Lake Erie                     21.38       0.85    4.82   0.48     10.95
            Total Percentage for Lorain Cty.              (100%)      4.0    22.5    2.3      51.2

            Erie County - Lake Erie
             Mainland                                     21.92       0.20    2.22   2.94      6.66      ---
             Sandusky Bay                                 11.54       0.48    4.05   0.36      1.25      1.80
            Total Erie County                                         0.68    6.27   3.30      7.91      1.80
            Total Percentage for Erie County              (100%)      2.0    18.7    9.9      23.7       5.4      ---

            Sandusky County       Sandusky Bay             4.02       ---     ---    0.52      0.23
            Total Percentage for Sandusky Cty.            (100%)      ---     ---   12.9       5.8       ---      ---

            Ottawa County - Lake Erie
             Mainland                                     85.93       1.4     8.75 9.54       20.21      4.2      7.8       5.
             Sandusky Bay                                 16.04               4.17   2.17      1.23        --
            Total Ottawa County                          101.97       1.4    12.92  11.71     21.44      4.2      7.8       5.
            Total Percentage for Ottawa Cty.              (100%)      1.4    12.7   .11.5     21.0       4.1      7.6       5.

            Lucas County
             Lake Erie - Mainland                         20.2        2.2     ---    2.9       2.5       1.5      9.8
             Maumee River                                  5.7        2.0     0.2    ---       2.1       ---      ---
             Ottawa River                                  2.0        ---     0.1    ---       1.9       ---      ---
            Total Lucas County                            27.9        4.2     0.3    2.9       6.5       1.5      9.8
            Total Percentage for Lucas County             (100%)     15.1     1.1   10.4      23.3       5.4     35.1       --

           TOTAL OHIO                                    275.05       13.38  35.10  25.90     74.10      8.50    17.60      6.
           TOTAL PERCENTAGE FOR OHIO                      (100%)      4.9    12.8    9.4      26.9       -3.1     6.4       2.

           MICHIGAN
            Monroe County
             Lake Erie - Mainland                         39.1        0.7     0.3    5.7       7.2       0.3     16.8,      1.
             Huron River                                   3.0          --    0.1    ---       0.2       ---
            Total Monroe County                           42.1        0.7     0.4    5.7       7.4       0.3     16.8       1.
            Total Percentage for Monroe Cty.              (100%)      1.7     1.0   13.5      17.6       0.7     39.8       3.

                                                                         -3-

                                                       Total
          LAKE ERIE                                   Length                                        Ag.     Fish    Recr.
                                                        of                     Resid. Resid.          &      &      (Fed.
                    (Continued)                      Shoreline Indst. Comm. (Seas.) (Perm.) Silvct. Wldlfe          State
          Wayne County
           Detroit River
            Mainland                                   31.0     16.2     2.7             5.0       ---      3.8      ---
            Grosse Island                              21.0      ---     --- ---        15.0       ---      0.8      ---
            River Rouge Shortcut                        2.2      2.2     --- ----        ---       ---      ---      ---
            Belle Isle                                  6.0      ---     --- ---         ---       ---      ---      ---
           Sf. Clair River     Mainland                 7.3      ---     --- ---         3.4       ---      ---      3.5
          Total Wayne County                           67.5     18.4     2.7    ---     23.4                4.6      3.5
          Total Percentage for Wayne County            (100%)   27.3     4.0    ---     34.6       ---      6.8      5.2

          Macomb County
           Lake Erie - Mainland                        29.1      0.1     1.7    0.3     19.1                1.5      ---
           Clinton River                                9.2      ---     1.3    ---      7.9       ---      ---
          Total Macomb County                          38.3      0.1     3.0    0.3     27.0       ---      1.5
          Total Percentage for Macomb County           (100%)    0.3     7.8    0.7     70.6                3.8

          St. Clair County
           Lake St. Clair - Mainland                   10.9      ---     0.1    ---     10.4       ---      ---      ---
           St. Clair River
            Mainland                                   36.5      3.1     3.0    2.2     22.6       ---      1.0      3.1
            Hangen's  Island                           18.0      ---     ---    5.0      8.0       ---      5.0
            Black River                                 1.5      0.2     1.3    ---      ---                ---
           (Lake Huron-Not Incl@uded)
          Total St. Clair County                       66.9      3.3     4.4    7.2     41.0       ---      6.0      3.1
          Total Percentage for St. Clair Cty.          (100%)    4.9     6.6    10.8    61.3       ---      9.0      4.6

        TOTAL MICHIGAN                                214.70    22.50 10.50 13.20       98.80      0.3     28.90    8.00
        TOTAL PERCENTAGE FOR MICHIGAN                  (100%)   10.5     4.9    6.1     46.0       0.1'     13.5     3.7

                                                                               0

                                                                            -4-

                                                         Total
           LAKE                                         'Length                                       Ag.     Fish    Rec
                                                          of                     Resid. Resid.          &      &      (Fe
                       (Continued)                     Shoreline Indst.   Comm.. (Seas.) (Perm.) Silvct. Wldlfe       Sta

              Subtotal
              Niagara River Shoreline                    59.55     4.80   18.60 1.30       10.20     ---      ---     13.
              Subtotal Percentage for    NRS             (100%)    8.1    31.2     2.2     17.2      ---      ---     23.

              Detroit River Shoreline                    60.2     18.4    2.7      ---     20.0      ---      4.6
              Subtotal Percentage for    DRS             (100%)   30.6    4.5      ---     33.2      ---      T.7

              .Lake St. Clair Shoreline                  10.9      ---    0.1      ---     10.4
              Subtotal Percentage for LSCS               (100%)    ---    0.9      ---     95.4

              St. Clair River-Shoreline                  63.3      3.3     4.3,    7.2     34.0      ---      6.o       6.
              Subtotal Percentage for SCRS               (100%)    5.2      6.8 11.4       53.7               9.5     10.

              Lake Erie Shoreline                        474.70   20.39   47.95 43.58    122.17     19.13    35.90    18.
              Subtotal Percentage for LES                (100%)    4.3    10.1     9.2     25.7      4.0      7.6       3.

           GRAND TOTAL: LAkE ERIE BASIN SHORELINE 688.65          46.89   73.65 52.08    196.77     19.13    46.50    39.
                          .(STUDY AREA)                  (100%)    7.0    11.0     7.8     29.4      2.9      7.0       5.

           1
              Source:The figures were compiled from data collected by the U.S. Army Corps of Engineers for tl
              of the Great Lakes Regulation Study being conducted in cooperation with the International Great
              International Joint Commission.
           2
              LEGEND:
              Industrial:   Exisiting length of shoreline occupied      for industrial use and estimated probable I
                            planning agency)
              Commercial:   Existing length of shoreline occupied for commercial use and estimated probable ft
                            planning agency)
              Residential   (Seasonal): Actual count of seasonal homes with lake frontage existing on shorelit
              kesidential   (Permanent): Actual count of permanent homes with lake frontage existing on shore
              Agriculture   & Silvaculture: Agricultural,f,rontage presently cultivated, including orchards, v
                                              existing on shoreline
              Fish & Wildlife: Existing length of shoreline occupied by.woodland, swampland, or wasteland h
                                 wildlife habitat value
              Recreation (Federal and State): Number of miles Federal and State parks exist on shoreline
              Recreation (Local.and@Private): Number of miles Local and Private parks exist on shoreline
              Undeveloped: Existinglenj@Zth of shoreline not vet develoned

                                                                         -5-

                                                      Total
          LAKE SUeL&IOR                               Length                                       Ag.     Fish    Recr
                                                        of                     Resid. Resid.         &      &      (Fed
                                                     Shoreline Indst. Comm. (Seas.) (Perm.) Silvct. Wldlfe         Stat
          MICHIGAN
           Chippewa County -@Lake Superior             58.8      ---     2.6    4.3      1.0     45.2      2.0      2.0
           Total Percentage for Chippewa County        (100%)    ---     4'.4   7.3      1.7     76.9      3.4      3.4

           Luce County - Lake Superior                 31.9      ---     ---    0.2      0.1     25.6      ---      6.0
           Total Percentage for Luce County            (100%)    ---     ---    0.6      0.3     80.3              18.8

           Alger County - Lake Superior               113.8      0.4     1.9    2.6      13.4    70.3      0.5     20.1
           Total Percentage for Alger County           (100%)    0.4     1.7    2.3      11.8    61.8      0.4     17.6

           Marquette County - Lake Superior            75.4      5.3     0.4   12.7      2.5     42.8      3.2      3.6
           Total Percentage*for Marquette Cty.         (100%)    7.0     0.5   16.8      3.3     56.8               4.8

           Baraga County - Lake Superior               75.3      1.6     1.8    5.5      3.6     46.2     11.3      2.6
           Total Percentage for Baraga County          (100%)    2.1     2.4    7.3      4.7     61.4     15.0      3.5

           Houghton County
            Lake Superior - Mainland                   53.1,-    0.5     1.0    5.9      1.4     33.5      1.8      1.5
            Keweenaw Waterway                          98.3      6.4     1.1    6.3      7.0       0.7     9.7      0.1
           Total Houghton County                      151.40     6.9     2.1   12.2      8.4     34.2     11.5      1.6
           Total Percentage for Houghton Cty.          (100%)    4.6     1.4    8.1      5.5     22.5      7.6      1.1

           Keweenaw County - Lake Superior             94.4      0.3     1.0    4.5      0.5     77.7      1.0      1.2
           Total Percentage for Keweenaw Cty.          (100%)    0.3,    1.1    4.8      0.5     82.3      1.1      1.3

           Ontonagon County - Lake Superior            49.5      0.2     0.7    1.8      0.5     24.9      ---      9.6
           Total Percentage for Ontonagon Cty.         (100%)    0.4     1.4    3.6      1.0     50.4      ---     19.4

           Gogebic County - Lake Superior              34.5      ---     ---    4.8.     0.1     18.7      ---     10.5
           Total Percentage for Gogebic Cty.           (100%)    ---     ---   13.9      0.3     54.2      ---     30.4

          TOTAL MICHIGAN                              685.00    14.70 10.50    48.60    30.10   385.60    29.50    57.2
          TOTAL PERCENTAGE FOR MICHIGAN                (100%)    2.1     1.5    7.1      4.4     .56.3     4.3      8.4

                                                                                -6-

                                                           Total
           LAKE SUPERIOR                                   Length                                           Ag.      Fish     Rec
                                                             of                       Resid. Resid.            &      &       (Fe
                            (Continued)                  Shoreline Indst.--Contn.     (Seas.)   (Perm.)-Silvct. Wldlfe        Sta
           WISCONSIN
            Iron County      Lake Superior                    7.3               --- ---          ---       7.1       ---
            Total Percentage for Iron County                (100%)     ---      --- ---          ---      97.5       ---

            Ashland County - Lake-Superior                  37.3       4.6      0.5   -0.3       1.0       6.6      23.3
            Total.Percentage for Ashland Cty.               (100%)     12.3     1.3    0.8       2.7      17.7      62.5

            Bayfield County - Lake Superior                 87.8       0.5      2.2    9.5      11.0      47.8       7.5       0.1
            Total Percentage for Bayfield Cty.              (100%)     0.6      2.5   10.8      12.5      54.4       8.5       0.

            Douglas County - Lake Superior                  19.3                       0.2       0.1      17.8       0.2
            Total Percentage for Douglas Cty.               .(100%)    ---      ---    1.0       0.5      92.3       1.0

           TOTAL  WISCONSIN                                151.70      5.1      2.7   10.0      12.1      79.3      31.0       0.1
           TOTAL PERCENTAGE FOR WISCONSIN                   (100%)     3.4      1.8    6.6       8.0      52.3      20.4       0.1

           MINNESOTA
            Cook County - Lake Superior                     91.5                6.7    8.1       9.0      22.2       ---      44.(
            m
            lotal Percentage for Cook County                (100%)              7.3@   8.9       9.8      23.4       ---      48.7

            Lake County - Lake Superior                     49.7                5.4    9.6       7.0      22.7                 5.(
            Total Percentage for Lake County                (100%)            10.9    18.4      14.4      45.9       ---      10.1

            St. Louis County
             Lake Superior -    Mainland                    32.4       ---      2.8    1.6       5.7       5.4       0.5      12.2
             Duluth-Superior     Harbor                     99.6       6.9    23.2     0.1       3.1       --- - ---           3.C
            Total St. Louis County                         132.0       6.9    26.0     1.7       8.8       5.4       0.5      15.2
            Total Percentage for St. Louis Cty.             (100%)     5.2    19.7     1.3       6.7       4.1       0.3      11.5

           TOTAL MINNESOTA                                 273.2       6.9    38.1    19.4      24.8      50.3       0.5      64.E
           TOTAL PERCENTAGE FOR MINNESOTA                   (100%)     2.5    13.9     7.1       9.1      18.4       0.3      23.7

                                                                           -7-
                                                        Total
         LAKE SUPERIOR                                 Length                                         Ag.       Fish    Recr.
                                                          of                      Resid. Resid.           &      &      (Fed.
                          (Continued)-                Shoreline Indst. Comm. .(Seas.) (Perm.) Silvct. Wldlfe            StatE

          Subtotal
            Keweenaw Waterway Shoreline                  98.3.     6.4      1.1    6.3       7.0      0.7       9.7      0.1
            Subtotal Percentage for KTJS                 (100%)    6.5      1.1    6.4       7.1      0.7       9.9      0.1

            Duluth-Superior Harbor Shoreline             99.6      6.9     23.2    0.1       3.1      ---                3.0
            Subtotal Percentage for DSHS                 (100%)    6.9     23.3    0.1       3.1                ---      3.0

            Lake Superior Shoreline                    912.00     13.40    27.00  71.60     56.9     514.5      51.3    119.0
            Subtotal Percentage for LSS                  (100%)    1.5      3.0    7.9       6.2      56.4      5.6     13.0

         GRAND  TOTAL: LAKE SUPERIOR BASIN             1109.9      26.7    51.3    78.0     67.0     515.2      61.0    122.1
                         SHORELINE (STUDY AREA)          (100%)    2.4      4.6    7.0       6.0      46.4      5.5     11.0

          TL:tl

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