O. E. LIBRARY
FEDERAL WATER POLLUTION CONTROL ADMINISTRATION
I
I
O. c. UB^'^^Y
THE NATIONAL ESTUARINE
POLLUTION STUDY
Volu
me
A Report to the Congress
U. S. Department of the Interior • Federal Water Pollution Control Administration
NOVEMBER 3, 1969
TABLE OF CONTENTS - VOLUME III ,-
PART V. Development of the Comprehensive
National Program
Introduction V-1
Chapter 1. Role and Programs of Federal
Agencies V-3
Section 1. Current Federal Role V-4
Section 2. The Federal Programs V-6
Section 3. A Synthesis of Federal
Programs and their
Means of Coordination V-37
Section 4. Summary V-50
Chapter 2. Coastal States' Responsibil-
ities, Programs, and Roles V-55
Section 1. State Profile Development V-55
Section 2. Selected State Organ-
izations — A Spectrum
of Development V-62
Section 3. A Coastal State's Organ-
ization for Managing
Estuarine Resources V-93
Section 4. State Estuarine Laws
and Ownership Problems V-1 00
Section 5. Evaluation of Coastal
State Frameworks V-1 16
Section 6. State's Views on Compre-
hensive Management V-1 24
Section 7. Summary and Conclusions V-1 38
i1 Table of Contents — Volume III
PART V. (continued)
Chapter 3. Role and Activities of Local
Governments V-147
Section 1. Introduction V-147
Section 2. Management Tools V-149
Section 3. Problems and Failures ........ V-156
Section 4. Selected Interlocal
Coastal Management
Programs V-161
Section 5. Recommendations and
Conclusions V-168
Chapter 4. Role of Compact Agencies in
Estuarine Management V-177
Section 1. Use of Compact Agencies
to Date V-177
Section 2. Proposed Uses of the
Compact Instrument in
the Chesapeake Basin V-192
Section 3. Summary and Conclusions V-201
Chapter 5. Views and Recommendations of
the Public and Private Sec-
tors on Roles in the Estuar-
ine Zone V-205
Section 1. Introduction V-205
Section 2. Planning and Conduct of
the Public Meetings V-208
Section 3. Method of Analysis V-210
Section 4. Summary Analysis of
Major Concerns V-232
Table of Contents — Volume III
1i1
PART V. (continued)
Chapter 5. (continued)
Section 5. Summary Analysis of
Recommended Management
Organization and Roles
of the Various Levels
of Government V-236
Section 6. Summary Analysis of
Recommended Role of the
Private Sector V-244
Section 7. Conclusions V-246
Appendix A Report of Sources and
Methods Used for Co-
ordination and Data
Gathering for the Na-
tional Estuarine
Pollution Study V-248
Appendix B Map Showina Locations
of Public Meetinos V-252
Appendix C Schedule of National
Estuarine Pollution
Study Public
Meetings V-253
Chapter 6. The Estuary Study Recommend-
ations as Compared with Other
Proposals for Managing the
Estuarine and Coastal Zone V-255
Chapter 7. Overall Estuarine Management,
A Summarization by Case
Study V-263
Section 1. Introduction V-263
Section 2. Description and Uses
of the Chesapeake Bay V-265
iv Table of Contents — Volume III
PART V. (continued)
Chapter 7. (continued)
Section 3. Major Problems and
Dangers to the Bay V-271
Section 4. Progress in Current
Management Activities V-274
Section 5. Evaluation of the
Chesapeake Bay V-280
Section 6. Description and Uses
of the San Francisco
Bay V-284
Section 7. Major Problems and
Dangers to the Bay V-291
Section 8. Progress in Current
Management Activities V-297
Section 9. Evaluation of the San
Francisco Bay V-302
Section 10. Summary and Conclusions V-307
Chapter 8. Summary and Conclusions V-3n
Chapter 9. Suggested Guidelines for a
State Management Statute V-331
PART VI. Development of Data on the Estuar-
ine Zone
Introduction . VI-1
Chapter 1, The National Estuarine
Inventory VI -3
Section 1. The Handbook of
Descriptors VI-5
Section 2. Estuarine Register
Areas VI-10
Table of Contents — Volume III
PART VI. (continued)
Chapter 1 . (continued)
Section 3
Section 4
Section 5
Section 5
Section 7
Section 8
Chapter 2.
Section 1 .
Section 2.
Section 3.
Section 4.
Chapter 3.
Section 1 .
Section 2.
Section 3.
Collection of
Information VI-14
Present Status of tne
Inventory VI-19
Problems and Solutions VI-23
Automation of the
Inventory VI-31
The Future of the
Inventory VI -45
Summary VI -48
Information and Data Needs
as Shown by the National
Estuarine Inventory VI-51
Nonexistent Data VI-53
"Gray" Data VI-62
Program Definition VI-68
The Recommended
Program VI -74
Major Research and Study
Needs VI-81
Introauction VI-81
The Data base Necessary
for Effective Technical
.Management VI -87
Major Knowledge Gaps
and a Program of Needed
Research and Study VI -97
vi Table of Contents — Volume III
PART VI. (continued)
Chapter 3. (continued)
Section 4. Ecology VI-100
Section 5. Toxicity VI-127
Section 6. Microbiology VI -133
Section 7. Physics and Mathematics VI -140
Section 8. Socioeconomic Factors VI -158
Section 9. Ancillary Research
and Study Needs VI-169
Section 10. Specific Research
Programs VI-181
Section 11. A Management Program
for Research and Study
in the Estuarine Zone VI -197
Section 12. study on Coastal Wastes
Management - National
Academy of Sciences -
National Academy of
Engineering VI-217
Section 13. Summary and Conclusions VI-251
Chapter 4. Sunmary VI -255
PART VII. Collection of Supporting
Information VII-1
Part V
DEVELOPMENT OF THE COMPREHENSIVE
NATIONAL PROGRAM
V-1
INTRODUCTION
As decreed by the Congress in Section 5g of the Act:
"The report shall include . . . recommendations
for a comprehensive national program for the
. . . development of estuaries . . . and the re-
spective responsibilities which should be
assumed by Federal, State, and local governments
and by public and private interests."
The recommendations are included in Part III of this report, and the
following portion. Part V, contains the background material for the
recommendations plus descriptions of the various governmental respon-
sibilities.
The rationale for this development is as follows. To provide a basis
for developing these recommendations and defining responsibilities,
a volume of material was amassed on the views, suggestions, programs,
and legislative authorities of all sectors of the National community
-- Federal, State, and local governments and public and private inter-
ests. This background information was obtained through very diligent
solicitations of all these sectors. The resulting material consisted
of reports, correspondence, and personal communications which were
analyzed and summarized to produce relatively brief overviews. The
source information used to produce the overviews is being retained
V-2
separately from this report for future reference and updating.
These overviews, which are quite brief considering the original mass
of information, are presented as the following chapters of this Part
of the Report. The order in which they are presented is essentially
the saiie as that used in the wording of the Act, that is. Chapter 1
is the Federal agencies; Chapter 2, the "State" agencies; Chapter 3,
the local governments; Chapter 4, the compact (or interstate) agen-
cies; and Chapter 5, the public and private interests. These over-
views were related to those of other marine resource studies (Chapter
6) and then related to specific geographic areas to present a concrete
overall view (Chapter 7) and finally summarized in the form of
Conclusions (Chapter 8). In turn Chapter 8 provides the skeletal
outline for the development of the recommendations enumerated in
Part III of this Report, and Chapter 9 provides suggested guidelines
for a management statute.
V-3
Chapter 1
ROLE AND PROGRAMS OF FEDERAL AGENCIES
This chapter describes the current Federal role and programs in the
estuarine zone and identifies the needs to be met to provide for a
stronger more effective Federal program.
The current Federal role as such, has grown over a period of many
years and has as its basis the national interest which extends
beyond State borders. The role is based on Federal legislation
which itself has developed over a period of years to meet many speci-
fic needs seen and acted upon by Congress. It has also grown as one
of concurrent jurisdiction with the States who exercise the primary
authority in the estuarine zone--Even so the Federal role is a vital
one and is essential to the preservation of national interests.
Broadly speaking these are:
(1) the protection and development of the Federal
interest in the natural resources of the estuarine
zone,
(2) commerce and navigation and,
(3) national security.
V-4
SECTION 1. CURRENT FEDERAL ROLE IN THE ESTUARINE ZONE
The description of the Federal program that follows is a more complete
picture of how the Federal role is implemented. In very brief form
the role itself has come to be:
(1) The provision of normal Federal projects such as
navigation channels, flood control and protective
works, aids to navigation, weather service including
tides and currents, mapping and charting both for
navigation and resources, and port security and
shipping control .
(2) Grants and loans to States and other entities for
planning, acquisition and development, for research
and study, and for facilities construction.
(3) Technical advice and assistance through conference
and consultation, mutual assistance projects, and
joint projects and studies.
(4) The preparation of broad studies and investigations,
including inventories and data collection necessary to
meet the requirements of Federal programs.
(5) Acquisition and development of selected sites to
preserve and protect them for the future.
(6) The exercising of regulatory authority in accordance
with current Federal law and statute. These authorities
include the issuance of permits, licenses, and other regula-
tions governing certain permissible uses or modification of
V-5
estuarine resources. They include also the enforcement of
water quality standards and various other controls over
pollution, and the enforcement of Federal law within the
navigable waters of the United States.
(7) The exercise of coordinating activities, for the
most part through close work with State counterpart
organizations and at the headquarters level through
committee and council work, routine daily business and
memorandum of agreement.
(8) Granting Federal consent to interstate and inter-
national compacts and commissions.
(9) Assuring appropriate Federal performances under
regional and international obligations for the management
of flyways, fisheries resources, etc.
V-6
SECTION 2. THE FEDERAL PROGRAMS
To meet the requirements of the national interest and to carry out
its role, the Federal Government has assumed fairly broad responsi-
bilities in resource management, planning, regulation and control,
and in many programs of technical and financial assistance to the
States and the subdivisions. The description of the Federal programs
that follows will show how this has developed and how these programs
currently meet Federal responsibilities.
In describing the current Federal programs in the estuarine zone it
is important to note that the greater part of these programs is of
much broader scope than just that of the estuarine zone, and thus
the activities reported herein are generally portions of larger pro-
grams which overlap and crossover the estuarine zone, because these
programs are of long-standing importance to the development and
preservation of the Nation's resources and to the promotion of its
commerce and industry they should not be fragmented or segmented by
arbitrary geographic dividing lines; nevertheless, this description
will confine itself as closely as possible to those parts of the
programs relating to the estuarine zone, with the possible risk of
appearing incomplete at times.
FOUR GENERAL CATEGORIES OF PROGRAMS
Categorization of the multitudinous Federal activities in the estuarine
zone cannot be clear-cut as there is a continuous series of interlocking
V-7
activities and concurrent jurisdictions. Nevertheless, four general
categories become apparent when the overall activities are viewed.
These are: (1) those activities and programs having a direct and
significant operational effect; (2) programs or activities having
indirect or related effects; (3) activities primarily of a research
and study nature; and (4) activities of a planning and coordination
nature.
CATEGORY ONE
PROGRAMS HAVING DIRECT AND SIGNIFICANT EFFECTS
Into category one have been placed the programs of the Department
of the Interior, the Department of Commerce, the Civil Works Program
of the Corps of Engineers, and the Department of Transportation, as
all these in themselves have a direct and major effect on the use of
the estuarine zone.
Department of the Interior
By virtue of the numerous activities of the bureaus and offices in
the Department of the Interior, the Department, in essence, is the
resource manager of the estuarine zone. This applies to both the
living ^nd nonliving marine resources and to a slightly lesser
extent the related land resources. This is well demonstrated in
the description that follows.
Interior's estuarine programs are planned and managed to meet expand-
ing national needs for material, aesthetic, and environmental resources
V-3
and qualities afforded by the estuarine areas. Programs in support
of objectives provide for aggressive leadership in research and
management. For the most part the programs also encourage and
complement appropriately designed estuarine activities of other
Federal agencies and State and local governments.
Bureau of Commercial Fisheries
Concerned largely with coastal waters and the open ocean, the Bureau
of Commercial Fisheries works with nature as yet little affected by
human management except for those anadromous species which use the
estuaries and migrate into fresh water to spawn. It has the respon-
sibility to ensure an adequate, dependable, and diverse supply of
fish and shellfish products of good quality; encourage optimum use
of estuarine living resources; and contribute to man's understanding
and control of estuarine living resources and their environment.
To achieve these objectives, the agency conducts research on estu-
aries, estuarine problems, or estuarine-dependent species of fish
at more than half of its twenty biological laboratories.
The Bureau of Commercial Fisheries and the Bureau of Sport Fisheries
and Wildlife have, after more than a decade as a service, recently
formed several interbureau committees on such matters of common
interest as estuaries, anadromous fish, and conflicts between com-
mercial and sport fishermen.
V-9
Task forces on ad hoc basis are constantly being formed for special
interbureau purposes. These developments and other basic respon-
sibilities of longer standing place the Department of the Interior
in an expanding role of leadership and responsibility in estuarine
research, planning, and management.
Bureau of Sport Fisheries and Wildlife
In the conservation of estuarine fish and wildlife resources and
the preservation of estuarine habitat, the Bureau of Sport Fisheries
and wildlife has a very substantial program. Under a variety of
legislative authorities the Bureau activities include investigations
and recommendations for the preservation and enhancement of fish
and wildlife resources in connection with waterfowl population
statistics and of regulations pertaining to waterfowl; Federal aid
to the States for acquisition of wetlands, research on fish and
wildlife, and access and development of facilities for fishing and
hunting; training of biologists and dissemination of technical
advice; conservation education: and pesticide monitoring.
The Bureau is also charged with the second estuary study underway
in the Department, the National Estuary Protection Act (PL 90-454).
This Act expresses the intent of Congress ". . .to recognize,
preserve, and protect the responsibilities of the States in protect-
ing, conserving, and restoring the estuaries in the United States."
V-10
This legislation directs the Secretary, in cooperation with the
States and with other Federal agencies, to conduct a detailed inven-
tory of the estuaries of the Nation. Such inventory and analyses
would be the base for determining appropriate means and measures of
preserving or restoring particular areas, including legislation.
Coordination of the two estuary studies has been accomplished
through the Office of Marine Resources, in accordance with Secre-
tarial Order Number 2908, approved in October 1968. In order to
avoid duplication of effort the Estuarine Protection Act Study will
use the Estuarine Inventory being developed by the National Estuarine
Pollution Study.
Of the 312 units in the National Wildlife Refuge System, 78 are
coastal. These coastal refuges have a combined shoreline of more
than 500 miles and an area of more than 18 million acres, of which
682,000 acres are identified as estuarine. As administrator of
these areas, the Bureau is a potent factor in the conservation of
these estuarine resources. An additional potent factor in the con-
servation of estuarine resources is the Bureau's responsibility to
review and comment on Corps of Engineers permits as required by the
Fish and Wildlife Coordination Act.
Bureau of Land Management
While the Bureau of Land Management is the designated management
agency of public domain lands, a sizeable portion of these lands
V-11
are along the California and Oregon coasts. The Bureau plays
strictly a management role, and, as such, has no authority to acquire
any additional lands. It is the Nation's largest land manager.
Bureau of Mines
The Bureau of Mines is oriented to research and information services.
In its estuarine related programs it seeks to develop the technology
necessary to minimize the adverse affects associated with mineral
recovery. They include a Mineral Resource Evaluation Study and the
development of marine mineral mining technology. The Bureau has
jurisdiction over that part of the Solid Waste Program which involves
materials resulting from mineral extraction.
Bureau of Outdoor Recreation
An examination of the Bureau of Outdoor Recreation program indicates
a central role in promoting Federal-State cooperation and coordination
in planning the acquisition and development of both existing and pro-
posed new estuarine areas devoted to public recreational use. Although
it administers no lands, it administers the Land and Water Conservation
Fund Act of 1965 (PL 39-578) which other agencies— Federal , State, and
local-make use of in their land programs. The Act provides grants to
the States for the planning, acquisition and development of outdoor
recreation areas and facilities, and to certain Federal agencies for
the acquisition and development of outdoor recreation areas and
facilities.
V-12
The Bureau also participates in comprehensive river basin planning,
water resource project planning, and reviews reports related to such
activities. The Bureau and the National Park Service also work together
on area planning, often with the participation of the Bureau of Sport
Fisheries and Wildlife. Emphasis is given to assure that adequate
consideration is accorded to the estuarine environment.
Federal Water Pollution Control Administration
Created by the Water Quality Act of 1965 (PL 89-234) and significantly
expanded in powers and funding through the Clean Water Restoration Act
of 1966 (PL 89-753), the Federal Water Pollution Control Administration
has a singularly complex and essential program.
In carrying out its pollution control program, this Agency conducts a
series of major programs in the estuarine zone. Briefly, these pro-
grams include Comprehensive Water Quality Management Planning, Technical
Services, Construction Grants Program, Enforcement, Water Quality
Standards and Research.
The Comprehensive Water Quality Management Planning Program in the
estuarine zone involves the coordination of the in-house water pollu-
tion control planning efforts with water resources planning conducted
by other Federal, State, and interstate planning agencies to ensure
adequate consideration of water quality factors. It also provides
the means for systematic evaluation of multiple resource needs to meet
future demands. This includes development of programs relating to the
V-13
control of water pollution in the estuarine zone. Water Quality
Management Planning Grants are made to State and local governments.
Under Executive Order 11288, FWPCA carries out certain review and
consultation responsibilities for the Department in connection with
wastes from Federal activities. The Corps of Engineers dredge and
fill permits on estuarine and coastal areas, are reviewed in regard
to effects on water quality.
The Technical Support Program operates water quality surveillance
networks and sampling programs (in cooperation with the Geological
Survey) and conducts special studies on the character, effects and
abatement of water pollution including that related to vessel wastes,
dredging activities, thermal discharges, municipal and industrial waste
discharges, land drainage and salt water intrusion. In addition, the
Program operationally administers the Oil Pollution Act of 1924, as
amended, and develops and coordinates the implementation of the
I'lational Multiagency Oil and Hazardous Materials Pollution Contingency
Plan and the supporting regional plans.
Enforcement proceedings are conducted to abate pollution of coastal
waters and also when there are violations of water quality standards.
Some 14 enforcement proceedings have been carried out in the estuarine
areas.
The research and development program provides for increasing the
knowledge and techniques for monitoring water quality in the estuarine
V-14
zone, for recovering those areas damaged by pollution through
a variety of means, and for determining the effects of water
pollution on estuarine life. The Federal Water Pollution
Control Administration has an extensive Research and Development
Program involving the detection, control and clean-up of oils
spilled into harbors, rivers, and estuaries.
Recently accomplished activities of the Federal Water Pollution
Control Administration include:
(1) the partial or complete approval by the
Secretary, of interstate water quality standards
for the fifty States, three territories, and the
District of Columbia;
(2) completion of the Oil Pollution Report and
a completion and implementation of the National
Multi -Agency Oil and Hazardous Materials Contin-
gency Plan; and
(3) in conjunction with the Geological Survey,
the Agency is currently using STORET as a data
storage and retrieval system. Its use will expand
as funds permit.
V-15
Geological Survey
The Geological Survey has been describinq and internretino the
environment for nearly a century, a nrereauisite for intelli-
gent efforts to Shane, control, or preserve it. It maps the
physical, hydroloqic and cultural features of the land and by
aerial photographs nrovides a record of chames over time,
thus, forming a basis for land-use plannino and interpretation.
This structural and historical geology of the Nation nrovides a
guide to useful minerals and fuels, and is basic to an under-
standing of soils. Reliable knowledge about v/ater is necessary
for inland navigation, flood control, power development, irri-
gation, municipal and industrial water supplies, pollution
abatement, fish and wildlife, and recreation. Geological
research plays a supportim role for many Federal agencies.
State programs, and private enterprises on land, at sea, and
in space. It should be noted that much of the survey's activity
is of a research nature and some of it is of a planninn and
coordinating nature.
Recent program accomplishments include the chames made in
Outer Continental Shelf (O.C.S.) rules.
On February 17, 1969, an amendment was published in the Federal
Register making the nnllution pr'^venticn section of the Geologi-
cal Survey (n.C.S.) regulations more restrictive. It also
V-16
established that companies operating on the Shelf shall be liable
without proof of fault for pollution resulting from their opera-
tions. These particular changes aonly to onerations on the
entire Shelf all around the country. On ^arch 21, the Secretary
announced that certain California O.C.S. Orders were changed.
(O.C.S. Orders are issued by Geological Survey Regional Oil and
Gas Supervisors and they aooly only to those Darts of the Shelf
within the snecific region under each supervisor's jurisdiction.)
These changed Orders nrovide for more strict control of oil
drilling and production operations in all Federal waters off
the entire State of California. Also, on March 21, the Secretary
directed that a two-mile wide permanent ecological preserve be
established off Santa Barbara immediately seaward of the
three-mile limit of the State of California. He also directed
that all unleased areas south of this permanent preserve will
be held as an additional buffer zone where no oil drilling or
production operations will be permitted.
Bureau of Reclamation
Although the Bureau programs in the seventeen western States have
little direct involvement in the estuarine zones there is
opportunity for its unstream water resource development activi-
ties to have long range impacts downstream on estuarine resources.
The downstream influences of these projects are being considered
and are of importance to the Department's interest and responsibility
in the estuarine zones.
V-17
National Park Service
The preservation of marine life and environments and the pro-
vision for marine-related recreational activities are major
considerations in the national Park Service's administration of
twenty-four areas along the Nation's seacoast and alonq the
shores of the Hreat Lakes. Fifteen of these areas are national
parks and monuments where resource protection is a major manage-
ment objective; seven are nr'tional seashores located along the
Atlantic, Tulf, and Pacific Coasts and two are national lake-
shores located along the Great Lakes where outdoor recreation
is a primary management consideration.
In addition, twenty-eight units within the "ational Park System
are historical areas found along our coastlines. Total length
of shoreline in these 52 areas exceeds 1,370 miles.
The service's combined role in marine-related areas is to
preserve and manage natural, scenic, historical, and scientific
features of these areas, to interpret these features for park
visitors, to provide and maintain facilities and services
necessary for park visitors to safely enjoy compatible recrea-
tional activities, and to provide access to waters and beaches.
The Service, also, participates in comprehensive river basin
and water resources project nlanning and in review of project
proposals and nermit applications.
V-18
Office of Saline Water
The primary objective of the Saline Water Conversion Program is
to develop practicable lov/-cost methods of producinq fresh water
from sea and other saline waters. The research and development
program is conducted by means of research and develonment grants
and contracts awarded to individuals, universities, nrivate
research organizations and industrial firms, and other govern-
ment agencies. Estuarial v/aters are one source of saline waters
for desalting. Disnosal of waste brine from a large desalting
plant may be a problem in relation to environmental conditions
in certain estuarine situations from the viewooint of increases
in salinity and temperature. The Office of Saline Water brine
disposal research program is directed to determining any
detrimental effects and means of alleviating them so that the
economic production of fresh water by desalination can be
continued without imnosing stresses on the environment.
Office of Water Resources Research
The Office of Water Resources Research, authorized under the
Water Resources Research Act of 1964 (PL 89-404) provides a
major benefit to the flation. It seeks to stimulate, snonsor,
and supplement present programs of research and traininn in
the field of water and of resources that affect water. This
is done through grants and contracts with academic and nrivate
V-19
institutions, private firms, individuals, and public aoencies
through operations in 50 States and Puerto Hico. 'lost of the
studies are on water supply augmentation and conservation,
while others are concerned with v/ator nuality mananenent and
protection, water quantity management and control, water
resources planning, and the hydrological cycle.
In summary, Interior's programs cover most of the major resources
and uses of the estuarine zone, including the ranidly increasing
recreational use and the unquantified aesthetic values.
The Department of Commerce
The Department of Commerce is another organization whose programs
have a direct and significant effect on the beneficial uses of
the estuarine zones. Because estuarine zones are used for sea
commerce, the Department of Commerce, and especially the Mari-
time Administration and the Environmental Science Services
Administration (ESSA), are concerned with these areas. Action,
primarily is directed toward collection of navinational data and
the development of harbor and port facilities. The Office of
Business Economics, the Bureau of the Census, and the Economic
Development Administration are indirectly involved in these
efforts.
V-20
The Maritime Administration has statutory resnonsibllitles for
promoting and encouraging the development of an American flag
merchant marine and U.S. ports and related transportation facil-
ities in connection with waterbornc commerce. In recent years,
the Maritime Administration has become increasingly aware of
the detrimental effects of harbor pollution and is involved in
activities to solve this problem. With the advent of nuclear
powered vessels and the resultinn radioactive discharges, the
Administration has worked towards the establishment of stringent
standards to prevent radioactive contamination of harbor waters.
Contracts for the development of devices to detect and nrevent
oil pollution of harbors have been let; the results of this
research have been oublished. This anency is also involved
in comprehensive research studies with several other agencies
to investigate the requirements of a national system of norts.
The proposed study v/ould consider long-range U.S. nort and
transportation needs, including detailed analysis of, recommended
solutions for, and specific Problems generated bv raoidly
changing shipping technology such as "the supercarrier." In
the process important interrelationships between transnortation,
urban renewal and estuarine resource developments could be
identified.
V-21
ESSA provides a direct and imoortant service throuoh its mission
of maooinq and charting the coasts and harbors of the United
States and its territories. In addition, it nrovides the adjunc-
tive services of tide and current information, marine weather
service, hurricane and tsunami warnims and various other suonle-
mental services rclatinn tn marine safetv and navination. Its
recently inaugurated flushing Prediction service will grow in
value to the beneficial use of the estuarine zones.
The Economic Develooment Administration althounh indirectlv
involved in estuary related programs does provide assistance in
comprehensive planning affectinn the estuarine zone and in sup-
port to actual projects in the zone. For example the Coastal
Plains Reaional Commission establishment pursuant to the Public
Works and Economic Development '^ct of 1965 has as an important
segment of its activities a Marine Resources Program desir-ned to
stimulate growth and use of marine resources in the Region. The
agency itself has contributed to numerous projects within the
coastal area.
In brief summary the Denartment of Comnerce nroorams provide
essential services in the estuarine zone contributing primarily,
but not entirely to the commercial use of the zone.
V-22
Corps of Engineers
Perhaps the organization that has the greatest direct physical
effect on the estuaries is the Corps of Engineers operating under
the Department of Defense.
Through its civil works program it literally maintains and adminis-
ters the navigable waters of the United States. Its programs in
the estuarine zone include:
(1) provision of channels, basins and protective
works;
(2) control of dredging, filling, excavation and
construction in navigable waters through issuance of
permits;
(3) development of areas for disposal of dredged
material during construction and maintenance of
navigation projects; and
(4) issuance of permits regulating the discharge of
industrial and other wastes into navigable waters.
Other important Corps estuarine-related programs include:
(1) removal of wrecks, aquatic vegetation, debris, drifts,
and other obstructions from navigable waters,
(2) restoration of beaches;
(3) construction and maintenance of small boat harbors;
(4) providing fishing sites on piers and breakwaters;
(5) fish and wildlife conservation;
V-23
(6) development of offshore sand sources for beach
restoration;
(7) low flow augmentation;
(8) conduct of design and research studies of estuaries
at Corps laboratories;
(9) administration of Federal laws protecting and
preserving U.S. waters; and
(10) flood and hurricane protection.
In addition, it must be noted that the Corps of Engineers programs
of dam building, flood control and river clearance upstream from
the estuarine zone have very definite effects on the fresh water
inflow to the estuary. Its study programs cover many facets of
estuarine research, including physical, chemical, biological, and
ecological factors. The comprehensive study of the Chesapeake Bay
authorized in 1965 but not yet undertaken, is a typical example of
Corps activity in this area.
Department of Transportation
The Department of Transportation is the fourth Federal agency whose
programs have a direct and significant effect on the resources and
the use of the estuarine zone.
Under this Department the Coast Guard performs a series of service
activities of essential importance to the beneficial use of the
estuaries. These include:
V-24
(1) the enforcement of Federal laws within the
navigable waters of the United States;
(2) port security with emphasis on the control and
movement of vessels and on the safe movement of
hazardous cargoes;
(3) maintenance and operation of aids to navigation
and regulation and administration of bridges over the
navigable waters ;
(4) search and rescue - assistance to persons operating
vehicles and aircraft in distress;
(5) administration of the Federal Boating Act of 1958;
and
(6) icebreaking.
In regard to the resources of the estuarine zone, those Coast Guard
activities having the greatest effect are the enforcement activities
concerned with oil pollution control, as provided under the Oil
Pollution Act of 1924, as amended, and its attempts to find ways to
ease or eliminate the unavoidable pollution. The Coast Guard now
has an active research program in oil pollution abatement, containment,
source control, and recovery of oil spills. Its role in the Ocean
Data Buoy System Program could assist in inshore pollution monitoring
at a later date.
Also under the Department of Transportation, the Federal Highway
Administration's Bureau of Public Roads is concerned with estuarine
V-25
resources because many of its highways cross and provide access to
estuaries. The Federal Aviation Administration's activities in
the construction and operation of airports encroach upon the estu-
aries and have impact on the surrounding environment.
CATEGORY TWO
PROGRAMS HAVING INDIRECT OR RELATED EFFECTS
In this category are the programs and activities of the Department
of Housing and Urban Development, Agriculture, and Health, Education,
and Welfare. In general, certain of their programs do have direct
and beneficial effect in the estuarine zone but they have it indirectly,
a result of programs directed towards the land rather than the water
areas of the estuarine zone.
Department of Housing and Urban Development
The Department of Housing and Urban Development provides direct
financial and technical assistance to States, metropolitan, and
local areas for comprehensive planning, housing and other aspects
of urban and metropolitan development. Much population growth and
development is near estuarine zones, and assistance programs for the
planning, development and use of estuaries and adjacent properties
have significant impact on these zones.
Comprehensive planning grants provide assistance to many levels of
government for the preparation of comprehensive plans for land use,
facilities and the use of natural resources. Comprehensive planning
V-2C
on an areav/ide basis is required as a condition for funding many
facility grant programs which directly affect estuarine zone manage-
ment. Grants for water and sewer facilities, for acquisition of
sites for public uses, and for the purchase of open snace for parks,
recreation and conservation can all contribute to better use of
waterfront areas and can aid in more effective estuarine management.
The National Flood Insurance Program, authorized by the Housing and
Urban Development Act of 1968, requires land use provisions to
restrict future development of flood-prone lands. By June 30, 1970,
permanent land use and control measures consistent with land
management must be adopted by State or local areas before insurance
coverage is provided. Title I of the Housing Act of 1949 provides
loans and grants for urban renewal or redevelopment of waterfront
areas. The Open Space Program can help protect urban wetlands and
develop or preserve undeveloped, waterfront areas for recreational
use. Newer programs, such as I'lOdel Cities, can assist estuarine
management by providing a coordinated program to improve the urban
environment. The New Communities provision of the 1968 Act will
encourage the private development of new communities by guaranteeing
the financing by developers. These can contribute toward estuarine
management through the location and design of land use patterns so as
to reduce pollution loads and improve recreational facility develop-
ment.
V-27
Department of Agriculture
The Department of Agriculture contributes to the overall management,
use, and preservation of the estuarine system. The particular pro-
gram concern of the Department is land use, soil and water conserva-
tion, erosion prevention practices, and certain measures involved in
placing and maintaining these lands in a stable and productive con-
dition. As erosion and the volume of sediment is diminished, the
estuaries can more effectively perform their normal biological roles.
Its areawide sewer and water planning grants and its sewer and
water facilities loans and grant, contribute to the abatement of
pollution to the extent that they are adjacent to the estuarine
zone.
Under Public Law 566, Watershed Projects provide effective control
and stabilization of sediment source areas that could otherwise con-
tribute harmful deposits into estuarine areas.
The Forest Service has Federal leadership in the forestry phases of
watershed protection. Twelve National Forests, which involve lands
that drain directly into estuarine areas, have land management
activities that directly affect the estuarine resource.
Research directed towards pesticide residues in silt and the use of
brackish water for irrigation will contribute to an increase in
knowledge of the estuaries, their uses and problems.
V-28
Here again is an example of programs directed towards land use and
the preservation of that land contributing also to the preservation
of the estuarine zone. In that they do so, the planning of such
activities should be related to any comprehensive estuarine manage-
ment plan.
Department of Health, Education, and Welfare
The relationship of this Department to estuarine zones and management
includes its concern about the fitness or suitability of these areas
for human use and the resulting impact on human health and well-being.
The Public Health Service of the Department has jurisdiction over
its estuarine-related activities through the Consumer Protection and
Environmental Health Service, namely the Pesticides and Shellfish
Sanitation Programs of the Food and Drug Administration and the
Bureau of Solid Waste Management, Water Hygiene and Radiological
Health of the Environmental Control Administration.
Food and Drug Administration activities include the evaluation of
food additives and pesticides in seafoods, conducting studies on
flora and fauna of certain estuaries, the development of fish pro-
tein concentrate, ecological studies of Clostridia (botulism),
toxicity, and carcinogenicity of smoked fish, salmonella in fishery
products, virus in marine foods, and toxicological screening. The
Food and Drug Administration is also responsible for administering
the National Shellfish Sanitation Program, which is primarily
V-29
concerned with the sanitary production of safe shellfish from high
quality estuarine waters.
The Bureau of Water Hygiene conducts studies on health aspects of
the water quality of the marine environment as it relates to shell-
fish production, recreation and water resources planning.
The Bureau of Radiological Health conducts projects on reactor
effluent radionuclides in marine ecosystems, radiological surveillance
of marine environments, and the passage of radio-elements through
sub-tropical marine environment and biota.
The Bureau of Solid Waste Management is surveying through contract,
the ocean disposal problem and expects to produce pollution potential
data. A research project in Boston, Massachusetts, is studying the
effect upon the marine ecosystem of incinerator residue.
CATEGORY THREE
RESEARCH AI^ID STUDY PROGRAMS
In Category Three are those agencies whose activities in the
estuarine zone are primarily research in nature; namely, the National
Science Foundation, the Smithsonian Institution, and the National Academ;.
of Sciences - National Academy of Engineering. The programs and
activities of all three of these organizations are extremely broad
and it is only as their activities relate directly to the estuarine
zone that we briefly describe them here.
V-30
The National Science Foundation
The National Science Foundation supports scientific research and
education in the sciences, including estuarine-related disciplines.
It has funded the development of marine and atmospheric research
facilities. It has also sponsored a broad spectrum of research
activities, and has supported the education of environmental
scientists of all kinds. The agency was also given additional author*
ity by the National Sea Grant College and Program Act of 1966 (PL 89-
688). Under the provisions of the Act, the National Science Founda-
tion acts to support applied research by establishing an Office of
Sea Grant Programs and by preparing policy guidelines for use by
grant applicants. Several Sea Grant programs have been directed
largely towards the estuaries.
The Smithsonian Institution
The Smithsonian Institution relates generally to the ecological,
biological and geological study, preservation and educational aspects
of fauna, flora, and sediments in estuarine areas. It depends upon
the accumulation and analysis of adequate biological and environ-
mental data to predict the impact of environmental modifications on
the estuarine biota. The modifications must represent improvement
rather than degradation. It operates an Oceanographic Sorting Center
for the processing of aquatic, biologic and geologic samples. It
develops interdisciplinary conferences, such as on pollution problems
V-31
in New York Harbor. It conducts studies on subjects ranging from
sedimentation and beach erosion to the distribution and abundance
of marine plants and animals. The agency is involved with several
research facilities with capabilities in the area of estuarine
ecosystems and in various kinds of tropical research.
National Academy of Sciences--National Academy of Engineering
The National Academy of Sciences (fJAS) and the National Academy of
Engineering (NAE) are twin organizations composed of distinguished
scientists and engineers dedicated to the furtherance of science and
engineering and their uses for the general welfare. Although not
government agencies, the academies enjoy close relations with the
Federal Government from which they hold Congressional charters.
Each charter specified, "the Academy shall, whenever called upon by
any department of the Government, investigate, examine, experiment,
and report upon any subject of science or art, the actual expense of
such investigations, examinations, experiments, and reports to be
paid from appropriations which may be made for the purpose, but the
Academy shall receive no compensation whatever for any service to the
Government of the United States."
The NAS and the NAE contribute to the development of knowledge of
the Nation's estuaries through their respective committees on
oceanography (NASCO) and Coimnittee on Ocean Engineering (NAECO).
The most recent contribution of the NASCO a:id NAECOE, acting in
V-32
concert, has been the conduct, at the request and under the sponsor-
ship of the Federal Water Pollution Control Administration, of a
meeting: "Coastal Waste Management," held in June 1969. This
session is described elsewhere in this report; the final resultant
document will be published by the academies early in 1970. The
purpose of this meeting was to examine the following questions:
(1) What is known about the impact of wastes on the
oceans?
(2) What is known about the magnitude of the impact
the marine environment can tolerate?
(3) What is our present capability to predict future
impact of wastes on the coastal ocean environment?
(4) What investigations should be undertaken in order
to improve our ability to handle the above questions?
The National Academy of Sciences and the National Academy of
Engineering have a history of significant contributions to knowledge
necessary to develop a sound system of management for the estuaries
and will continue to offer valuable guidance in the future by bring-
ing together in appropriate groups the most competent scientists and
engineers in the country to deal broadly with scientific and engineer-
ing problems in estuaries and to exchange information in the further-
ance of research.
V-33
CATEGORY FOUR
PLANNING, COORDINATING, AND LICENSING PROGRAMS
These are the Government agencies whose functions lie generally in
the field of planning, coordinating or licensing. Their activities
as they relate to or affect the estuarine zone are briefly described.
The Water Resources Council
The Water Resources Council, established in the Water Resources
Planning Act of 1965 (PL 89-90) awards planning grants to the States
for their comprehensive planning in the development of water and
related land resources, including estuarine resources. This planning
considers that the Nation's estuaries and coastal areas are inseparably
related to their watersheds and to the rivers which supply them with
fresh water. These watershed relationships determine the characteris-
tics of estuaries and coastal areas and influence their usefulness to
man. Among the many objectives of such planning is a consideration
of appropriate regional institutional arrangements necessary to
implement the comprehensive plans. It also advises the President on
national water policy, maintains a continuing assessment of national
water supply needs, and coordinates the activities of Federal water
resources agencies. The Council also oversees the execution of con-
gressional ly authorized comprehensive water and related land resources
planning projects for specific river basins. Existing Federal-State
river basin commissions under the aegis of the Council are organized
and functioning in 15 of the 30 coastal States, and alternative Federal'
V-34
State planning coordination mechanisms are organized in all the remain-
ing coastal areas under the general leadership of the Water Resources
Council .
National Council on Marine Resources and Engineering Development
The Marine Resources and Engineering Development Act of 1966 (PL 80-
454) established two complementary bodies: The Commission on Marine
Science, Engineering and Resources and the National Council on
Marine Resources and Engineering Development. The latter provides
for the development, encouragement, and maintenance of a comprehensive
long range and coordinated national program in marine science. The
national program applies to oceanographic and scientific endeavors
and disciplines, engineering and technology in and with relation to
the total marine environment. The report of the Commission with
respect to multiple use of the coastal zone will be discussed in some
detail in a later chapter.
The Atomic Energy Commission
The interests and operations of the Atomic Energy Commission (AEC)
regarding the estuarine zone lie almost completely in the effects of
radiological and thermal wastes as pollutants in estuarine zones.
Research programs and projects of the Commission most directly related
to the estuarine system are conducted through contracts, with an
emphasis on nuclear safety. Such broad programs include:
V-35
(1) Disposal of radioactive v^/astes--the1r effects and
movements through estuarine zones;
(2) accumulation of radionuclides in wildlife and
sediments of these zones and their relation to the
ecology of the zone;
(3) use of radionuclides in pollution study and
the detection of pollution, and in some cases,
the abatement of pollution; and
(4) thermal effluents from atomic plants.
The AEC licenses nuclear plants from the standpoint of radiological
safety only. This important licensing authority unfortunately does
not now require consideration of other environmental effects, parti-
cularly those of thermal effluents.
Federal Power Commission
The Federal Power Commission is an independent agency operating under
the Federal Power Act, the Natural Gas Act, and other statutes. It
is concerned principally with the regulation of the interstate aspects
of the electric power and natural gas industries. Some of the regu-
latory activities involve power and natural gas facilities located
in estuarine zones.
Under the authority of the Federal Power Act, the Comnission issues
licenses for the construction and operation of nonfederal hydroelec-
tric power projects on navigable waterways, on any stream over which
V-36
Congress has jurisdiction where the project affects interstate conroerce,
or on public lands or reservations of the United States; it investi-
gates and prepares reports on the water and power development of the
rivers of the United States; it collects data on the electric power
industry; and it studies plans ^'cr reservoir projects proposed to be
constructed by Federal agencies i..d makes recommendations concerning
the facilities to be installed fot hydroelectric power development.
That Act directs the Cormiission to promote and encourage the voluntary
interconnection and coordination of f.lectric utility systems to assure
an abundant supply of electric energy throughout the United States
with the greatest possible economy and with regard to the proper
utilization and conservation of natural resources.
V-37
SECTION 3. A SYNTHESIS OF FEDERAL PROGRAMS AND
THEIR MEANS OF COORDINATION
The Federal proqrams in the estuarine zone are widespread and quite
obviously have far-reaching effects. They must support the national
interest and meet numerous Federal responsibilities. In addition,
thty have a considerable effect on State and local programs. To be
effective the various Federal programs should complement each other,
should avoid duplication and should be well coordinated with one
another and with the corresponding State -level programs.
In order to present a reasonably clear synthesis of the Federal
programs, the accomoanying Table V.1.1 presents a summary of major
Federal activities in six different estuaries. For each Department
and for each of the selected estuaries there are listed the routine
activities or programs of the Department and then the additional or
special activities in that particular estuary. The routine activ-
ities generally stay the same for each estuary and are most often
those imposed by statute or results of long standing programs. The
special activities are an attempt to note specific projects, studies,
etc., of current or recent nature in individual estuaries. Means
of coordination currently in use are listed in the final column.
For purposes of simplicity the table presents only the programs
having direct and important interest or related effects (categories
one and two). This is not to derogate "the importance of other
activities but only to provide for simpler presentation.
V-38
TA&LE V.1.1
Sunmarlzatlon of Federal Activities
Federal OttMrtMent
DeliWitr* B«y
Penobscot Bay
Chesapeake Bey
Routine Activities
Happing and charting envlrorwental
prediction Port Developaent
Special Activities
None reported.
Applies to a1] six estuaries
Special Activities
Special E$tuar1ne~f lushing
studies and predictions.
Special Activities
None reported .
Transportet'lon
Routine Activities
A11 Coast Guard services, I.e., Lew
enforccaent. aids to fMvlgatlon, rescue,
boating safety, port security, control
of shipping.
Special Activities
tone reported.
Applies to all six estuarlts
Special Activities
tone reported.
Special Activities
None reported.
Corps of Engineers"
Rouilne AcHvlCTT
Kafritenance of ICivlgeble waters.
Control of dredfe and fill by perait.
Harttor pollution. Hart>or construction.
Special Activities
Scale KydriuHc Model (Vicksburg).
Study scheduled on deep draft channel.
(Dept. of Defense)
Applies to alt six estuaries
Special Activities
Deep draft channel study.
Special Activities
Special study of the Chesapeake Bay
authorited by Act of Congress )96S.
joutJBt ActKUTw
Pervit review In conjunction with Corps of
EnginMrs paralt ectivltles. Land and Uater
Cofuenration Fund Grants, Sewage and Construc-
tion Crents, various Planning and Nenagaaant
and Resource Preservation and Qevelopavnt
branu. MaUr flow dat^ participation In
R1*er a«s1n CoMtlstlon Type I and II Studies.
Special Activities
SpmUI Sled ituAy
SedlMnution Study
Fluthlng Pattern Research
Interior
Applies to all sli ettueriet
Special Activities
Participation in Conservati on ,
Biological and Heavy Nttjl Studies
Special Activities
Various Fisheries and Fisheries Econoaic
Studies. Milfoil and Sea Nettle Studies
BCF Biological Laboratory. FHKA Chesapeake
Technical Support Laboratory. Water Quality
Enforcanent (PotOMc) Administration of
Historic Shrine. Participetlon In various
ecological, biological, chaalcal and geologic
*tudiM.
AflTi CU I tU^"
Bouiu icHvurw
Soil and Uater Conservation Projects.
S«Mr and Water Planning and Construction
Grants. f:«t«rshed Protection. Flood Control.
Special Activities
dune St^lllzetlon Adjecent to Delware Bey
Applies to all six estuaries
Special Activities
Special AssisUnoe Grants with
Measures to Control Pollution
Special Activities
Bank Erosion Control Projects
Healt/i Education
and yelfare
BouHne Activities
Marine Health. Pestialdes. Public WaUr Supply
Food and Drugs froa Marine Sources. Solid
UasU. Shellfish Sanitation Progran
Special Activities
Savage Sludge Du^ S1U Study
Applies to all six estuaries
Special Activities Special Activities
Special Shellfish Sanitation Survey Planned Special Study Re^rdlng Effect of
Sewage Plant
Hoittj'oa and Urban
QevelopBenI "
Routine Activities
Planning and Assistance In lise of Uater
Adjacent Property. Areawlde and L'Kal Planning
Uater ind Sewer Facilities GranU.
fVen Space Land Grants
Special Activities
None Refwrted
Applies to all six estuaries
Special Activities
None Reported
Spec
tone
lal Activities
Reported
V-39
TABLE V.1.1
SuMwrlzatlon of Federal Activities - Continued
I B«y
S*n Frinclsco B«y
Pu9tt Sound
Coordination U cirrltd out In UfM of th« R*qu1r«*Rt«
liposed on tht various progrMn.
Sptclil ActWItlei
Hon* rtporttd.
SptcUl Act1»1ti«
Nofw rtportcd.
Special Actlvitlti
HoM reported.
Water Resources Council Associate
rship
Coordination Is carried out In tenn of requlrenants l^wsed
on the program In Enforcement boating safety and the lUe.
Enforcenent Is carried out In close coordination with StaU
and local authorities.
Uater Resources Council
Special Activities
Hone reported.
SptclaT Activities
None reported.
Special ActivUiet
None reported.
htp.
Special Activities
Special hurricane
protection ^asures
report.
Special Activities
Coordinated CQapre>)ens 1 ve
survey - Navigation Flood
control, water supply land
reclai^tlon, recreation,
national defense, etc..
operates Hydraulic scale
«Mle1.
Special Activities
CoHprehenslve Survey 1969.
Coordination through working closely with SUte counterparts.
Corps projects themelves are developed through exUnslve co-
ordination of the various ne«h and eipressed desires of StaU
and local Interests - and Federal Interests.
Nutual assistance projects, grants. Joint projects and
studies with States and other Fe^ral affOfKles.
Coordination through regulatory activities (the penalt systaw)
granting of the per«U coordinated with SUU authorities and
with Fe
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V-182
GENERAL ACCOMPLI STENTS OF WATER RESOURCE COMPACTS
Accomplishments of the compact instrument in managing water (and
related land) resources generally fall into two broad categories.
The first is regulation of use and/or modification of water
resources covered by the compact. This too takes two forms:
(1) the enunciating or developing, by means of the compact, of
a binding agreement among the signatories on basic policies which
are to govern the use of the resources and (2) the implementation
by a joint agency, which the compact establishes, of such basic
policies through a variety of means, including action to induce
or compel others to comply with these policies and direct opera-
tion of facilities and administration of resources by the compact
agency itself.
The second category of accomplishments is the performance by the
compact agency of services supporting resource use or regulatory
programs.
Each of these accomplishments is illustrated and elaborated below.
DEVELOPMENT OF BINDING POLICIES
Use of the compact can accomplish this in one or both of two ways.
Under the first method, the compact itself exoresses a negotiated
agreement among the signatories on basic policies which, by virtue
of that enunciation, become binding upon all of them. The tyoical
V-183
water allocation compact 1s probably the best example of this
type of accomplishment. Among compacts more directly Involved
In estuarlne management, the best example Is the Tri-State com-
pact, which creates the Interstate Sanitation Commission. Here
the compact Itself specifies the type of waste treatment each
signatory will require for each of certain classifications of
water use.
Under the second form, the compact itself does not express the
basic policy agreement among the signatories. Instead, each
State 1n the compact agrees to be bound by the policy decisions
which the States collectively will reach within the framework
of the compact agency. Examples are the Delaware River Basin
Commission 1n its decision on water quality standards for the
Delaware River and In the policies 1t applied to the recent
drought emergency In that basin. Also Illustrative are the
policies adopted by the Potomac River Fisheries Commission to
regulate fishing 1n the waters under Its jurisdiction.
In either form, th^s accomplishment effectively achieves program
coordination between the signatories to the compact, perhaps In
the only sure way possible short of transferring the resoons1b1l1
ty for coordination to a higher level of government.
V-184
IMPLEMENTATION OF BASIC POLICIES
Use of the compact can achieve Implementation of basic policy
agreements among the signatories In two ways. Under the first
form, the compact agency Is authorized to require those propo-
sing use of the basin's waters to obtain Its prior permission.
Depending on Its exact authority, the agency thus Is able to
implement policies, either enunciated by the compact Itself or
which the agency Itself has developed, through such means as:
(1) the attaching of performance requirements as a condition to
Its permission to others to utilize or modify the resource,
(2) the issuing of directives ordering other entitles to take
steps, or halt activities, specified by the agency, and (3) the
initiating of court action to compel compliance by others with
the agency's permits and orders. Exemplifying this accomplish-
ment among the agencies here surveyed are the Interstate Sanita-
tion Commission and the Delaware River Basin Commission. The
former's accomplishments in this regard are limited to the pre-
vention or abatement of pollution. In contrast, the latter's
actual or potential accomplishments extend also to such matters
as the withdrawal and diversion of water from the basin and to
the use of water for purposes other than waste disposal.
A compact agency can Implement policies, secondly, through its
own direct operation of various facilities affecting water resources
V-185
or through directly administering certain resources. Although
not strictly water resource agencies, examples are: the Breaks
Interstate Park Commission and the Palisades Interstate Park
Commission, both of which administer Interstate recreational
facilities; and the Port of New York Authority and the Delaware
River Port Authority, both of which administer transportation
facilities In Interstate metropolitan areas. Although none of
the agencies included in this survey has accomplishments In this
area, the Delaware River Basin Commission is authorized directly
to administer and operate a broad variety of estuarlne-related
sites and facilities.
PERFORMANCE OF SERVICE FUNCTIONS
A major objective of the States In utilizing the compact instru-
ment has been the creation of a joint agency to support the pri-
vate development and use of such resources and/or their manage-
ment by the signatories or others. Although these services may
not seem as prestigious or significant as the development and
implementation of basic policies governing the use of water
resources, such compacts too can make an Imoortant contribution
to improved use and management of resources.
The nature of these supporting services varies. They include:
(1) serving as a clearinghouse and regional forum through which
the signatories gain improved understanding of one another's
V-186
objectives and needs and through which they voluntarily coordinate
their respective programs; (2) planning in the sense of develop-
ment by the compact agency of policies and plans of an advisory
or recommendatory nature; (3) the conducting or promoting by the
agency of research and studies aimed at exoanding the knowledge
base and thus improving management policies; (4) increasing pub-
lic awareness and understanding of program needs by information
dissemination and education programs; and (5) representation by
the agency of State views and interests at the Federal level.
Although most compact agencies perform one or more of the services
mentioned above, the programs of several of the agencies included
in this review are limited to these services. Specifically, this
is true of three of the fisheries comoacts (Atlantic, Gulf, and
Pacific); the present Potomac pollution control compact, whose
agency has stressed studies, public education programs, and ser-
vice as a regional clearinghouse and forum; and the New England
Interstate Water Pollution Control Commission, whose activities
have been characterized by advisory program planning, program
coordination, research and studies, and service as a regional
clearinghouse and forum.
EVALUATION OF THEIR PAST ROLE IN ESTUARINE MANAGEMENT
As shown in Table V./:.2, each of the three interstate fisheries
comnisslons has stressed the improved use of fishery resources
V-187
as Its major purpose. As part of this effort, each also has
attempted to reduce the damage to estuaries through pollution and
other causes. Limited in each case to a research-coordinating
and recommendatory role, none of the agencies has itself been
able to do much about such damage. Moreover, even in the restric-
ted role of these agencies, their limited resources -- in money
and size of the staff -- have seriously handicapped their
effectiveness.
Like their counterparts in the fisheries, the three interstate
pollution control agencies have not become significantly involved
in estuarine management. In the case of two -- the New England
Interstate Water Pollution Control Commission and the Interstate
Commission on the Potomac River Basin -- authority is limited to
support of State pollution control agencies. It also extends, in
the case of the first agency, over a geographic arei much larger
than this region's estuaries. This latter point ar>pears less
important in the case of the Potomac commission, because it has
shown special concern with the estuarine portion of the river.
That concern, however, has almost solely stressed the pollution
threat. In both of these agencies, limited financial resources
also have curtailed the overall contribution which they can make.
Although concerned with what clearly are estuarine waters, the
authority of the Interstate Sanitation Commission extends only to
the control of pollution. Also, while it technically has
V-188
regulatory authority, this may be more apparent than realj for
it can compel a polluter to take corrective action only if its
order to that effect receives assent from a majority of the
commissioners from each member State. Thus, a decision by the
commission to order abatement of pollution, or to enforce com-
pliance with such an order, is really a decision by the State
in which the polluter is located, and the role of the interstate
commission can more properly be described as ministerial in
nature.
Unlike the agencies already discussed, the Delaware River Basin
Commission is multipurpose in nature. Moreover, in developing a
more comprehensive approach to water resource management, it can
employ a broad range of authority, including regulation and
operation of its own facilities. It also can exercise regulatory
authority on the basis of a simple majority decision by its
commissioners. Federal membership in the commission also enables
it to coordinate Federal and State activities in the basin. To
date, however, its concern with the estuarine resources of the
basin appear to have been quite limited. It includes adoption of
water quality standards for the estuarine portion of the river,
the development of a 10-year fisheries research program, the
inclusion of certain estuarine resources under its comprehensive
development olan for the basin, and the preparation of plans for
a broad study of Delaware Bay, leading to the development of a
V-189
plan for manaqing its water and related land resources. This
limited role presumably reflects a decision to give priority
to the river itself.
Although the Delaware River Basin Commission clearly has the
potential to develop into a more significant force for a compre-
hensive approach to the management of the estuarine resources of
that basin, its role in this regard can be expected to emphasize
the management of estuarine water resources. This is because
its authority tc control land use appears to be primarily advisory
and recommendatory in nature.
Compact agencies thus to date have not played an extensive or
significant role in managing the Nation's estuaries. With the
exception of the Delaware River Basin Commission, each agency
has been predominantly concerned with a single phase of estuarine
management problems. In most cases, the agency's concern with
estuaries also has been only an incidental part of a broader
mission. Finally, the role of most agencies -- in law or in fact --
has been restricted primarily to service to the signatory States.
In other words, the States usually have stopped short of giving the
compact agency real decision-making and enforcement authority on
estuarine management questions and issues.
POTENTIAL POLE IN ESTUARINE MANAGEMENT
What about the role of the interstate compact in the comprehensive
national program to manage estuaries more effectively? Can, and
V-190
should, the compact Instrument play a significant part In this
emerging program? The answer to this second question Is "yes,"
If two conditions are met.
First, If a compact is proposed for more than the performance of
service functions, the States must In fact give their joint agency
authority and resources sufficient to enable It to override each
State's prerogative Independently to make and carry out its own
policies in its own portion of the estuary. Put differently, this
condition requires that the authority and resources given to a
compact agency be commensurate with its basic mission. If that
mission is regulatory in the sense that the agency is to develop
the basic policies that are to govern the management of a particu-
lar estuary, then the decisions of the comoact agency must be
binding and preclude any signatory from administering less restric-
tive management policies. There also must be a means of avoiding
deadlocks between the signatories which stall needed decisions,
and of compelling the agency to make those decisions. The latter
is especially essential in situations where differences in State
views concerning policy in the estuary reflect very fundamental
conflicts among tJifferent uses of estuarine resources.
Similarly, if the basic mission of the compact agency also Includes
the implementation and enforcement of these basic policies, then
its authority (1) must not be subject to the veto of a single
State, (2) should include all of the usual legal oowers employed
V-191
to abate pollution and other public nuisances, (3) should include
the power to disallow action that is inconsistent with established
policies, (4) should include authority to perform functions of a
State or local agency if made necessary by the inaction of one
of Its signatories, and (5) should be supported by adequate finan-
cial and staff resources.
Likewise, if the agency's mission does not include either the
setting or implementation of policy and is limited to that of
regional service, then too its authority must be designed and
supported so that the staff of the agency in fact can perform that
service effectively and usefully.
The second condition is that the compact cannot be allowed to
supersede or diminish Federal responsibility and authority for
sound management of the Nation's estuaries. With or without
Federal membership in the compact agency, a compact cannot
abrograte the Federal Government's obligation to view the problems
and needs of each estuary from a national perspective and to act
accordingly within the limits of its authority.
Given adherence to these conditions, the compact instrument should
prove to be a constructive way of achieving improved management
in interstate estuaries. It also could achieve the decentraliza-
tion of policy-making and administration that is essential, if a
major enlargement of Federal management responsibility is to be avoided.
V-192
SECTION 2. PROPOSED USES OF THE COMPACT INSTRUMENT
IN THE CHESAPEAKE BASIN
THE SUSOUEHANNA AND POTOMAC COMPACTS
Both of these nev/ comnacts are concerned with the management of
resources indirectly affecting the estuarine resources of Chesapeake
Bay. The first, the proposed Susquehanna River Basin Compact, has
been approved by Maryland, New York, and Pennsylvania, and legisla-
tion granting Congressional consent is awaiting action in the 91st
Congress. The second, the proposed Potomac River Basin Compact,
was drafted by a special committee established by the Governors of
Maryland, Pennsylvania, Virginia, and West Virginia. It presently
awaits action by the State legislatures and by the District of
Columbia, which the compact includes as a member.
In brief, each compact would establish a joint agency of the
signatory States and the Federal Government patterned after the
Delaware River Basin Commission. Each would be empowered to perform
essentially three broad functions.
The first would be to serve as a special organizational mechanism
through which the basin States and the Federal Government v/ould
consult on mutual problems and interests regarding the water and
related land resources of the basin.
The second function would be to coordinate the activities of these
governments and of nongovernmental entities directed toward the use
V-193
and management of the basin's water and related land resources. This
coordination would be achieved principally through a comprehensive
water resources plan -- which would be an expression of basinwide
goals, standards, objectives, programs, and projects -- to be adopted,
and revised as appropriate, by the compact agency; and through the
water resources program, which the compact agency would be required
to adopt annually as a statement of how the comprehensive water
resources plan would be implemented by the signatories, the commis-
sion, and others.
The third broad function proposed for the agencv is to construct and
operate necessary projects and facilities, or to undertake other
desirable activities, when no other governmental agency or nongovern-
mental entity does so, or when the signatory parties decide that the
compact agency is the most appropriate entity to do so.
Although substantially similar, the Potomac compact differs in that
it would also extend the agency's authority to the preservation and
promotion of, in the words of the compact, "... the aesthetic
and other values inherent in the historic, scenic, and environmental
amenities . . ." of the Potomac River Basin. The Susquehanna compact,
in other words, is more strictly confined to the management of water
resources.
If the new Potomac compact is enacted, the new basin agency would
absorb the present Interstate Commission on the Potomac River Basin.
V-194
OBJECTIONS TO PROPOSED COMPACTS
A number of Federal agencies have voiced objections to certain
features in the Susquehanna compact. As stated in WRC Agenda
Memorandum #2, prepared for the Water Resources Council, these
agencies are objecting to:
(1) Voting and other provisions that could be used to
adversely affect the duties and responsibilities of
Federal agencies under the Federal statutes defining
their respective missions.
(2) The provision that the Federal member on the compact
agency is to be ". . . the direct representative of the
President. . . " The Federal agencies object to this
because the States reportedly have indicated this wording
would mean that no Federal agency would be authorized to
guide the decisions of the Federal member and, further,
that this member could disregard the wishes of the Cabinet
officers directing the Federal departments dealing with
water resources.
(3) The absence of safeguards giving assurance that the
action of Federal licensing and regulatory agencies would
prevail, in the event of conflict or confusion resulting
from the exercise by the compact agency of comoarable
powers vested in it by the compact.
V-195
4. The absence of provisions requiring the compact
agency to give preference to public bodies and coopera-
tives in the sale of hydroelectric power generated at
projects constructed and operated by the agency.
Because the proposed Potomac compact follows substantially the
same approach on each of the above issues, one must conclude
that it will encounter similar objections from Federal agencies.
In addition, however, objections already are being raised to this
compact as it is being considered for possible ratification by
the State legislatures. This early opposition appears to stem
from various local governments and private interests in the basin,
and particularly from the West Virginia portion of the basin.
Although phrased in a variety of ways, the objections seem basical-
ly to reflect the following: (1) that the interests of uostream
water users are inadequately protected; (2) that local govern-
ments in the basin are subordinated to a too-powerful compact
agency; (3) that there is a lack of popular or citizen control
over the compact agency; (4) that the agency's regulatory authori-
ty over the use of land resources of the basin is too extensive;
and (5) that the District of Columbia should not be included as
a signatory equal to the basin States.
V-196
A SUGGESTED USE OF THE INTERSTATE COMPACT
IN MANAGING CHESAPEAKE BAY
Proposals to utilize a compact to improve State-level management
of the estuarine resources of Chesapeake Bay have been advanced
from time to time. In recent years, this proposal usually has
called for the enactment of a compact modeled after the Delaware
River Basin Compact and the two compacts now being urged for the
Susquehanna and Potomac River basins. Adherence to this approach
would place the estuarine resources of Chesapeake Bay under a
Federal -interstate commission empowered to perform the three
broad management functions which were noted earlier in describing
the latter two compacts.
As here conceived, however, the interstate compact to manage the
estuarine resources of Chesapeake Bay would be an agreement
between Maryland and Virginia under which each State would commit
itself to tsko four actions:
(1) To prepare and, after consulting with the other
State, to adopt and implement a management olan for
the portion of Chesapeake Bay under its jurisdiction;
to prepar'e this plan in cooperation with local govern-
ments, the other State, appropriate Federal agencies,
and others; and to include in such plan at least the
following components: (a) wetlands protection and
management component; (b) water quality management
V-197
component; (c) recreational use comnonent; and (d) water-
v/ay, utilities, and industrial use component.
(2) To establish policies and procedures whereby each
State assures that its local political subdivisions will
implement and comply with the plan after its adoption.
(3) To require its agencies and local subdivisions,
when developing legislative or other significant action
proposals affecting the bay resources, to (a) study
and consider all impacts, including the long-range
effects, of the proposed action on the estuarine resour-
ces of the bay; and (b) explicitly state considerations
of National, State, or local policy which justify any
adverse effects that cannot be avoided by following
reasonable alternatives.
(4) To establish and maintain a joint agency in coopera-
tion with the Federal Hovernment that shall: (a) coordi-
nate State and Federal research and studies in the bay
and conduct its own work along these lines; (b) conduct
an education program concerning issues in the use and
management of the bay's resources; (c) evaluate proposed
plans and projects, both public and private, for the
use and management of the bay and its estuarine resour-
ces by identifying the proposal's advantages and disad-
vantages, weighing tradeoffs between disparate benefits
involved in the proposal, pointing out effects on the
V-198
various interdependent uses of the bay's estuarine
resources, and suggesting alternatives that should
be considered; and (d) periodically evaluate exis-
ting management programs and the condition of the
bay's estuarine resources, economic and other trends
affecting those resources, and report its conclusions
and recommendations to the two States and the Federal
Government.
Three major objectives underline the proposed use of the compact
instrument along the preceding lines.
The first is to create a governmental institution whose predo-
minant concern and mission would be to define and clarify issues
and the consequences of alternative policies for the use and
management of the estuarine resources of Chesapeake Bay. Deci-
sions on those issues and execution of those decisions would
remain with the politically responsible legislative and adminis-
trative institutions of the two States and the Federal Government,
The aim would be to dramatize more effectively, to the political
process which must choose among alternative ways of utilizing
and managing the resources of the bay, the two central needs that
are the core of sound resource management. These are, first, to
eliminate or reduce the adverse spillovers from certain uses that
V-199
decrease or destroy the possibility of other use of the same
resources. The need, in other words, is maximum preservation
or conservation of the resource in order to maintain multiple
use, and therefore maximum use, both now and in the future.
The other need is to resolve the competition among different
uses which results from the ever-increasing intensity of
utilization, and from the inherent ultimate scarcity of some
estuarine resources, through the conferring of priority on that
mix of uses which society deems most beneficial, based on both
short- and long-range considerations.
To facilitate the compact agency's performance of this unique
function, which today is largely not performed, each signatory's
membership in the agency should represent broad citizen interest
and values in estuarine resources rather than those of the indi-
vidual Federal or State agencies administering resource develop-
ment or protection programs. It is the nature of the governmen-
tal process in this country that these line agencies as a rule
must be especially responsive to special client groups. Sound
management, therefore, requires that the special evaluative
function here proposed for the compact agency be directed by
persons not associated with the more narrow interest or viewpoint
usually characteristic of these agencies.
The second objective is to obtain an agreement between Maryland
and Virginia that each will develop and implement a comprehensive
V-200
plan for the use and management of its oortlon of the estuarine
resources of Chesaoeake Bay. In essence, the goal here is to
apply to the resources of the interstate bay the planning and
management approach that the San Francisco Bay Conservation and
Development Conmission has applied to, and proposed for, the
resources of that intrastate estuary. (See Part V, Chapter 3
for a discussion of BCDC.) Also implicit in each State's agree-
ment on this point would be a comnitment on its oart to establish
a greater degree of State-level supervision and control over
zoning and other local regulations over land uses within the
basin that affect estuarine values. At present, of course, each
State's original authority to exercise these controls itself,
has largely been delegated to its local units of government.
These units, not surprisingly, have wanted to promote the economic
growth of the local area and improve its tax base. However, in
the absence of effective review and supervision by a State agency
charged with protecting estuarine resources, the result too often
has been that local governments succumb to strong local pressures to
proceed with poorly planned or limited-purpose development of
these resources.
The third objective is to enact in each State, by means of the
compact, statutory provisions requiring that all State or local
legislative or other significant action oroposals affecting the
estuarine resources of the bay include m) assessment and justifica-
tion by the nroposinq entity of the proposal's effect on those
resources and their use.
V-201
SECTION 3. SUMMARY AND CONCLUSIONS
The effectiveness of existing compact agencies 1n managing the
Nation's estuarine resources has been limited. The reasons are
basically three.
First, the predominant concern of most compact agencies
in existence has been with a single phase, or at most a
few of the multiple phases, of estuarine management.
Single purposes that have received special emphasis are
the protection of fishery resources and the prevention
or control of water pollution.
Second, concern with estuarine resources in most
instances has been only an incidental part of a broader
assigned mission to the agency. In other words, estua-
rine resources and problems ordinarily have not been
the agency's special point of focus.
Third, the actual role of most compact agencies -- in
law or in fact -- has been predominantly one of rendering
supporting services to the signatory States. The States,
in other words, have continued to make and execute most
of the important estuarine management decisions outside
of the compact agency's framework and procedures.
The potential contributions that the compact instrument can make
to improved management of estuarine resources are important.
V-202
nevertheless. They fall broadly into two categories.
(1) Regulation of use and modification of interstate
estuarine resources through, first, the enunciating or
developing of a binding agreement among the signatories
on basic policies which are to govern the use of those
resources; and, second, the implementation of such poli-
cies by the compact agency through a variety of means,
including action to induce or compel compliance by others
with these policies and the direct management and oper-
ation of estuarine sites and facilities by the agency
itself.
(2) Performance of services supporting the use of es-
tuarine resources or their management by the signatories.
The use of the compact instrument which this chapter has suggested
in the case of the Chesapeake Bay is an example of each contribution.
For a compact device to contribute to improved management of inter-
state estuaries, it must meet two requirements.
(1) the authority and resources of a compact agency must
be commensurate with its basic mission. It is especially
essential, if a compact authorizes the signatories' joint
agency to develop and implement the basic policies which
are to govern the use of the estuary, that each member
State in fact should subordinate its authority to that of
the compact agency.
(2) the compact cannot be allowed to supersede or diminish
V-203
the Federal Government's responsibility and authority to
view the problems and needs of each estuary from a national
perspective and to act accordingly within the limits of its
authority.
V-205
Chapter 5
VIEWS AND RECOMMENDATIONS OF THE PUBLIC AND PRIVATE
SECTORS ON ROLES IN THE ESTUARINE ZONE
SECTION 1. INTRODUCTION
The Clean Water Restoration Act of 1966, in establishing the National
Estuarine Pollution Study, directed that the Study be conducted in
cooperation with various Federal, State, and interstate bodies, and,
in addition, with "...local public bodies and private organizations
institutions, and individuals...", and that "recommendations [shall
be made] for a comprehensive national program for the preservation,
study, use, and development of estuaries of the Nation, and the re-
spective responsibilities which should be assumed by Federal, State,
and local governments and by public and private interests." [Empha-
sis added.]
Much was done through appointed representatives and many briefings,
consultations, and exchanges of correspondence. But, to meet the
requirement of bringing the Study to the local level and to private
individuals, and generally to reach all those who were not being
reached by other means, it was decided to hold a series of public
meetings — at least one in each coastal State — to obtain the views
of all those concerned about the condition of the estuaries.
The decision was a fortunate one, in that the meetings proved to be
an excellent vehicle for obtaining a comprehensive cross-section of
public opinion regarding the needs of and dangers to the estuarine
V-206
zone. Attendance at the thirty meetings was good — not only in terms
of number, but also in variety of organizations and individuals repre-
sented. Many statements, both oral and written, were made. Complete
transcripts of each meeting were prepared, and, as a result, it is
possible to extract from them a reasonably accurate report of the
major concerns of those in attendance.
An additional important result of these meetings has been increased
public awareness of the values and problems of the estuaries, because
of the publicity given them. This has already resulted in favorable
action at both State and local level to further the protection of the
estuarine zone.
The public meeting proved to be an invaluable mechanism for obtaining
statements of concern and recommendation from those groups and indi-
viduals who are usually left without a voice in studies of this kind.
It was hoped that a variety of presentations would be made, and the
success of the public meetings in this regard was far beyond anyone's
expectations.
Because the public meetings were most important in bringing the Study
to the attention of individuals and to private organizations, the re-
mainder of this Chapter is devoted to an analysis of these meetings
and the conclusions to be reached from such analysis.
In addition, there were other successful means of contact which re-
sulted in a continuous flow of information. The wide diversity of
V-207
sources and methods used has been briefly described in the intro-
duction to the Study, and is more fully delineated in the outline
in Appendix A. The outline also further indicates the importance
of the public meetings in reaching various groups.
There were, of course, many other sources of information used
that made particular efforts to gain the views and ideas of both
the public and private sectors. The report by the Panel on
Management and Development of the Coastal Zone is an excellent
example. This Panel of the Commission on Marine Science,
Engineering and Resources held eight informal hearings in various
parts of the Nation at which a total of 126 persons testified.
The Panel, in addition, interviewed or corresponded with over 600
persons.
The results of the above Panel studies are discussed in greater
detail in another chapter; they are noted here because of their
importance as sources of public contact.
V-208
SECTION 2. PLANNING AND CONDUCT OF THE PUBLIC MEETINGS
In order to bring the planning of the public meetings as close as
possible to potential witnesses, this responsibility was delegated
to the six Regional Offices of the Federal Water Pollution Control
Administration involved with the coastal States.
To reach as many people as possible, and to allow for the broadest
possible representation, invitations were sent to organizations,
business and industrial concerns and groups, and State and local
government bodies; and announcements were made in the local press
and on local radio stations, in an effort to encourage individual
citizens to attend and speak.
Each meeting was presided over jointly by the Regional Director and
by the Governor's Representative to the National Estuarine Pollution
Study.
Because of the high degree of interest shown by the people in attend-
ance, transcripts of the meetings, including written submissions,
were prepared and sent to the participants and other interested
persons.
Between January of 1968 and February of 1969, thirty meetings were
held. A map showing the meeting locations appears in Appendix B,
and the schedule of these meetings appears in Appendix C.
V-209
The meetings reached a total of 2,868 persons and groups 1n attend-
ance, with 1,069 statements presented for the record. Attendance
and participation involved many different types of organizations,
government and nongovernment institutions, business, and individuals.
Transcripts frequently ran to 350 pages, and included a number of
technical reports on the effects of pollution and on the general con-
dition of specific estuaries, among other things.
Because the transcripts are a permanent part of the Study, it is pos-
sible to analyze them for a number of features, and report the results.
V-210
SECTION 3. METHOD OF ANALYSIS
Perhaps the hallmark of the public meetings was the tremendous volume
of information and recommendations presented by the various represent-
atives of national organizations and their local affiliates, of State
and local government godies, of academic and research institutions;
and by the individuals who spoke only for themselves.
Attendance was good and varied. Testimony was most frequent from the
national organizations and government bodies. Academic institutions
and industry were somewhat less involved in testifying, but did pre-
sent good information and recommendations. In addition, the involve-
ment of individual citizens was most heartening.
All of these people presented input vital to the Study, and the pub-
lic meeting provided the only real forum for them.
In order that the material presented at the public meetings could be
reported with some accuracy, it was important that there be some means
for identifying the affiliation of each speaker, and the nature of his
statement.
Accordingly, the first step was to determine the kinds of representa-
tion, and the numbers of speakers within each group. After determin-
ing categories of speakers, a count was made of the speakers and total
attendance within the groupings for all meetings. The four groupings
selected are as follow:
V-211
Group I. National organizations and their local affiliates,
local organizations, and individuals;
Group II. Academic institutions, private research firms,
and scientific foundations;
Group III. Industry, users, and industrial groups; and
Group IV. Federal, State, and local government bodies.
Table V.5.1 presents the tabulation of witnesses and attendees in each
of the groups, and the total number of statements and attendance.
TABLE V.5.1
Types of Groups and Participation in Public Meetings
for the National Estuarine Pollution Study
Number Total
Group Statements Attendance
I. National Organizations and
Local Affiliates, Local Organ- 407 746
izations, and Individuals
II. Academic Institutions,
Private Research Organizations, 133 264
and Scientific Foundations
III. Industry and Users, and
Industrial Groups 168 705
IV. Federal, State, and Local
Government Bodies 361 1,153
Totals of All Groups 1.069 2,868
V-212
As will be noted, organizations (Group I, above) and governments
(Group IV) were most strongly represented in statements, with users
(Group III) and academic people (Group II) speaking in lesser numbers.
However, governments, organizations, and industry were well represented
in terms of total attendance.
After organizing the statements by type of speaker, it was then nec-
essary to determine subject areas for the information and recommend-
ations presented in the various statements. These subject categories
were established as a series of eight questions, as follow:
(1) What are the major uses and values of the estuaries and
estuarine zones?
(2) What are the dangers and problems in the estuaries and
estuarine zones?
(3) What have been the results of pollution, modification,
and use in the estuaries and estuarine zones?
(4) What needs to be done to restore, preserve, and protect
the estuaries?
(5) What types of research and study are needed, and how
should this research be done?
(6) What type of organization is needed to best protect,
control, and manage the estuaries?
(7) What should be the role of the State and local govern-
ments in management of the estuaries?
(3) What should be the role of the Federal Government in
management of the estuaries?
V-213
Table V. 5. 2 shows the number of statements responding to each ques-
tion, by group, and in gross total.
As will be noted, the questions on dangers to, uses and values of,
and needs to restore the estuaries received the largest numbers of
replies. Slightly behind were the questions on effects of pollution
and research and study needs. The questions concerning management
organizations and the recommended roles of the various levels of
government received considerably fewer responses.
The next step, and without doubt a most important one, was to analyze
the replies to the questions in order to bring out the concerns and
specific answers most frequently expressed. To do so, each of the
eight questions was analyzed separately on one of the accompanying
1^ Table V.5.3 formats. The views, concerns, and answers expressed were
synthesized into a few brief statements listed in the left-hand col-
umn of the Table, and then the number of statements expressing each
of the views was entered by group and in total in the columns to the
right side. From this process, a more-or-less priority listing of
the major concerns expressed by the greatest number of participants
was prepared for each question. Because most of the people attend-
ing the public meetings made several points in each statement that
responded to any question or questions, the total derived by adding
the responses shown on the appropriate Table V.5.3 format will be
greater than the total shown for the corresponding question on Table
V.5.2.
V-214
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V-216
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