A COMPREHENSIVE WATER POLLUTION CONTROL PROGRAM
for the
Prepared in Cooperation with the State Water Pollution Control Agencies
of
MICHIGAN, MINNESOTA and WISCONSIN
U. S. DEPARTMENT OF
HEALTH, EDUCATION, AND WELFARE
Public Health Service
Public Health Service Publication Number 367
FOREWORD
Our country's development over the past 50 years has been marked by tremendous progress in
many fields. It has made possible great gains in the health, comfort, and well-being of the
people. But it has not been without cost. Part of the cost has been the damage to the Nation's
water resources that has resulted from wastes discharged to the streams by our growing cities
and industries. All water uses have been affected public water supplies, recreation, agri-
culture, industry, fish and aquatic life.
In enacting the Federal Water Pollution Control Act in 19^8, the Congress declared that
"water pollution has become a matter of grave concern in many areas and its damaging effects on
the public health and national resources are a matter of definite Federal concern as a menace to
national welfare. Abatement must be undertaken in order to control it."
The Public Health Service, as part of its responsibilities under this Act, is required to
prepare or adopt, in cooperation with other Itederal agencies, State and interstate water pollu-
tion control agencies, municipalities and industries, comprehensive programs for the abatement
of pollution.
This report describes the comprehensive water pollution control program for the Lake
Superior Drainage Basin prepared in cooperation with the Michigan Water Resources Commission,
the Minnesota State Department of Health and the Wisconsin Committee on Water Pollution. The
program gives full consideration to the several present uses and to the reasonably anticipated
future uses of the waters of this basin. It has been designed to provide an equitable balance
in the pollution control requirements for various private and public groups concerned.
I am pleased, therefore, in my capacity as Surgeon General of the Public Health Service, to
adopt this program as a comprehensive program which fully meets the requirements of the Federal
Water Pollution Control Act.
Tills program is based on beneficial water uses and related conditions that prevailed on
January 1, 195^* Comprehensive programs for pollution control must necessarily be flexible.
They must allow for growbh, development, and changing conditions. Any significant changes
affecting water quality, such as stream flow, water use, industrial development, population,
etc., may require changes in the pollution control program.
Obviously the mere adoption of this program will not, in itself, reduce pollution or im-
prove the usefulness of the waters in this basin. It does provide to the citizens of the area
and to the city officials and industrial leaders, farmers, fishermen, conservationists, and
others an objective plan based on good engineering practice and reflecting sound economics. It
is a plan which the public can support, and must support, if progress is to be made in the
abatement of pollution.
Certain additional considerations beyond the mere acceptance of a plan are essential to its
auccesQful execution. The citizens of the areas affected must see that sufficient resources
are provided to the State water pollution control agencies concerned to enable them to make the
technical investigations to aid those responsible for constructing pollution abatement works.
We must recognize, too, that in order to be fully effective, the plans and programs of one
State must be geared closely to those of adjoining States, since State boundaries are no barrier
to pollution traveling in interstate streams. Above all, no program of this nature can progress
"beyond the report stage if its meaning and purpose are not made clear and understandable to the
citizens of the area. In the final analysis, they are the ones who will pay, directly or indi-
rectly, for the pollution abatement works that are needed,
It is my hope that this program for the Lake Superior Drainage Basin will "be carried
through to completion so that the area may enjoy all the benefits that clean water can provide,
in health and recreational opportunities for the people and in sound growth of industry and
agriculture ,
y?
cLSL^O-^~4^-d- W .
Leonard A. Scheele
Surgeon General
TABLE OF CONSENTS
Page No.
Foreword ----------------------------------------
Introduction -------------------------------------- - 1 -
Comprehensive Water Pollution Control Program --------------------- 3
Physical Description ---------------------------------- *-"
Economic Development ---------------------------------- H
Use of Water Resources --------------------------------- 13
Pollution Discharged to Surface Water ------------------------- i5
1 7
Damages to Water Resources from Pollution -----------------------
Benefits Resulting from Pollution Prevention and Abatement --------------.- 19
Pollution Prevention feasurea in Effect
Pollution Prevention Measures Required
ZO
Tables
Table A - Sewered Municipalities ---------------------------- 15
Table E - Separate Industrial -Outlets ---------_--_-_--_----___ 1.6
Table C - Existing Treatment Facilities, Municipal ------------------- 20
Table D - Existing Treatment Facilities , Industrial ------------------ 21
Table E - Adequacy of Existing Treatment Facilities ------------------ 21
Table F - Requirements for Municipal and Industrial Waste Treatment Plants ------- 26
Table G - Status of Treatment Works Projects to Abate Pollution, January 1, 195 1 )- - - - - 26
Appendix
Appendix I - Basic Data on Sources of Municipal Pollution --------------- ii
Appendix II - Basic Data on Sources of Industrial Pollution ---__-________ ix
ii
INTRODUCTION
The Federal Water Pollution Control Act, Public Law Qk$ , passed by the 8oth Congress in
June lyk&f requires the Surgeon General of tlie Public Healbh Service to cooperate with other
Federal agencies, with State and interstate water pollution control agencies, and with munici-
palities and industries in the preparation or adoption of comprehensive programs for elimi-
nating or reducing the pollution of interstate waters and tributaries thereof, and improving
the sanitary condition of surface and underground waters .
This report, prepared in cooperation with the water pollution control agencies of Michigan.,
Minnesota, and Wisconsin, sets forth a water pollution control program for the Lake Superior
Drainage Basin. This program, which is based on data available as of January 1, 195^, was
developed after a thorough consideration of the existing and potential uses of the water
resources in the basin; the pollution entering the streams and lakes, and the resulting damages;
the benefits which may result from pollution prevention and abatement; and the prevention meas-
ures now in effect as well as those which are needed.
Agencies which cooperated in the preparation of this report include the Michigan Water
Resources Commission, Minnesota Water Pollution Control Commission, and the Wisconsin Committee
on Water Pollution. Likewise, acknowledgment is made to the Corps of Engineers, Department of
the Array; Soil Conservation Service and Forest Service, Department of Agriculture; Bureau of
Census, Department of Commerce; Bureau of Mines, Fish and Wildlife Service, and Geological
Survey, Department of Interior; and the Federal Power Commission, for their review of the report
and for the Information gleaned from their published reports .
COMPREHENSIVE WATER POLLUTION CONTROL PROGRAM
for the
LAKE SUPERIOR DRAINAGE BASIN
General Characteristics and Economic Development
The Lake Superior Drainage Basin, as considered in this document, consists of the watershed
areas of the streams and rivers draining into Lake Superior from the United States. The land
area of the basin is approximately 16,860 square miles of which k6 percent is in Michigan, 36
percent in Minnesota and the remaining 18 percent in Wisconsin. The principal tributary rivers
are the St. Louis, Montreal, Bad, Bois Brule, Carp and Ontonagon.
The basin has a rough topography with the land rising steeply from an elevation of 600 feet
above sea level at the lake shore to altitudes of about 1,200 feet near the shore and 1,800 to
1,900 feet farther inland to the northwest in Minnesota. The area along the southern shore in
Wisconsin and Michigan rises less abruptly, but to about the same height as in Minnesota. Most
of the streams have steep gradients ranging up to 25 feet per mile.
The streams of the basin have reasonably uniform flows with lowest flows occurring in 3ate
fall and early winter. The most significant characteristic of the streams, from a pollutional
standpoint, is the prolonged ice cover of about five months each year when there is little
opportunity to replenish depleted dissolved oxygen by reaeration.
A modified marine climate occurs near the lake shore and particularly in the peninsular
areas while farther inland. the climate is continental. Monthly mean temperatures for the basin
as a whole range from 10 F. to 63 P. with extreme temperatures ranging from a low of -^70 p.
to a high of 106 ?. About 60 percent of the annual 30 inches of precipitation falls during the
warm season, and snowfall varies from 55 inches to 276 inches in different parts of the basin.
The Growing season, which varies from 80 days in some parts of the basin to 130 in other areas,
also reflects the wide climatic range produced by the two distinct types of climate found in the
basin.
The basin's lakes, streams and scenic areas furnish excellent hunting, fishing and vaca-
tioning facilities, the use of which provides considerable income for the area. Commercial
fisheries operating in Lake Superior bring in several million pounds of fish each year with al-
most 18 million pounds, valued at more than two million dollars, being caught in 19*19.
The outstanding industries in the basin are the raining of iron ore and copper and the benc-
ficintion of iron ore. Lumbering and paper manufacture are also of considerable importance
while agricultural activity is very minor. Navigation is comparatively extensive and most of
the iron ore that is produced in the -three basin States moves through the basin's ports on its
way to the mills. The total freight tonnage moving through the St. Mary's River amounted to
over 128 million tons in 1953, with iron ore beinR the principal outgoing freight and coal,
limestone, and petroleum products the principal imports.
The 1950 population of the basin was approximately 1|O.6,000 with 1)8 percent of the people
living in Minnesota, 33 percent in Michigan and 19 percent in Wisconsin. Over half of the
basin's people live in the 12 cities with populations of 5,000 or over, and one-third of the
basin's population is concentrated in the Duluth- Superior area.
Water Use and; Water_guality Objectives
The basin's waters are used for municipal, domestic and industrial supplies; fish and wild-
life propagation; recreation; water power; navigation; and disposal of wastes,
Approximately 185,000 people, k 1 ? percent of the basin's population, are served by municipal
water supplies using surface water as a source, and a number of households; resorts, camps and
others also depend upon surface water for their domestic supply. Most of the 17 municipalities
that use surface water get their supply from Lake Superior, although other lakes and some of
the rivers are also used as sources. The quality of finished water for municipal supply-
depends, to a considerable degree, upon the quality of the raw water used. The quality of the
water used for individual private domestic supplies is, in general, the -quality found at the
source, as such supplies seldom receive treatment before use. Therefore, source water quality
objectives are among the f tic tor a considered when determining the treatment requirements for
pollution sources upstream from such supplier. In determining the a u it ability of water sources
for municipal and domestic supplies, State health and water pollution control officials used
Public Health Bulletin 296, "Manual of Recommended Water Sanitation Practice," and. comparable
State manuals as guides.
The larger industries of the basin also use cur face water a aa their source of supply.
Water quality requirements for these industrial supplies vary, and no specific criteria can be
adopted as each case must be considered separately in light of the specific needs of the indus-
try under consideration. Of General concern, however, are the organic and biological constitu-
ents, toxic and taste- and odor-producing substances, and. properties of corrosion, encrustation
and. slime formation.
The streams and lakes receive heavy recreational use, including sports flKhang, swimming,
camping and boating. There are numerous; recreation' developments, swimming areas, and' National
and State porks in the basin where camping, swimming, boating, and other recreational facilities
are available. Quality objectives for the bacteriological quality of bathing places recom-
mended by the Joint Committee on Bathing Places (joint study of the American Public Health Asso-
ciation and conference of State Sanitary Engine-era, covered in a report entitled "Re commended
Practice for Design, Equipment, and Operation/of bVimming Pools and Other Public Bathing Placer;, "
19^9), together with sanitary surveys, and comparable State criteria are employed. In- the admin-
istration of the basin's pollution control programs as related to bathing waters. Although,
quality objectives for water used for non- swimming recreation do not set forth as high 11, bac-
teriological criterion, the same basic fundamentals are used by the States in their program
concerning those uses .
Sport and 'commercial fishing arc very important uses of the waters which also serve as
waterfowl refuges as well as general wildlife habitats. The general criteria advocated by the
U. S. Fich and Wildlife Service calling for a balanced, aquatic habitat and limiting concentra-
tions of pollutional substances are used, by authorities in this basin for fishing waters.
Ample flow, favorable river gradients, and the topography of the sur round. ing. land mala; the
streams of this basin very conducive .to the development- of .water power, and there are ;>1 hydro-
electric projects located within the basin. Navigation is confined to the waters of Lako
Superior the waterway over which most of the Nation's iron ore is moved to market. The basin's
waters also serve as final outlets for the wastes of its communities and. industries .
.Sources and Kri'eGt of ^Pollution
There 'are 80 sewered communities and 196 separate industrial waste outlets in the basin
which' discharge to the watercourses a pollution load that hat! a combined population equivalent
of more than 650,000.
Eighty percent of the basin's population reside in the communities that have sewerage
systems, and over 312,000 of them are served by the municipal sewers. Two cities are discharg-
ing untreated sewage with a population equivalent of .6*^000, while the other '/f.i communities are
discharging an undetermined amount of treated and untreated sewage to the basin's wabora.
Industrial, organic wastes with a combined population equivalent of about 590,000 are being
discharged through separate outlets by 13 industries, three of which account for ^,900 of this
amount. Inorganic wastes are being discharged by 177 Industries, most, of which ore mlin.-n and
ore beneficiation plants.
The .29 municipalities which do not provide treatment for their wastes have a nuworocl popu-
lation of 117,520, which is approximately 'lO percent of the total sewered population in 'the
basin. Eleven of the 51 existing municipal sewage treatment plants are considered to have in-
adequate capacity to handle their present load which, totals about 112,000, while ticvun plants
are not being operated satisfactorily. 'Ninety-three of the industries provide some degree of
treatment for their wastes, but nine of these do not have adequate capacity to handle tlio -
present waste load.
Pollution has damaged water uses in certain areas of the basin, and most of this damage has
been the _ result of depleted dissolved oxygon or high coliform bacterial counts in the waters.
In the mining area of the basin, the damages have, in general, been due to the turbidity caused
by the oxidation. of the iron in the mine wastes and deposition of mine waste solids on stream
beds, although the underground vater source of Ironwood,. Michigan, was damaged by mine wastes
which increased the hardness and chloride content of the water. Fishing and recreational water
uses have been most commonly damaged by pollution as depleted oxygen, high bacterial counts,
excessive turbidities and solids deposition all affect these uses.
Several instances of fish kills and of odors in fish caught in the Pilgrim -River have been
reported. High coliform bacterial counts of over 2to, 000 per 100 cubic centimeters have been
obtained in the Montreal River and have. been attributed to. the municipal wastes being discharged
into this river/ The State of Michigan placed the portion of this river beginning at Ironwood
and extending 15 miles below that city on the 1950 list of waters which were unsafe for recrea-
tion, swimming, and allied purposes.
Untreated 'municipal wastes have caused serious pollution in several localized. areas, and
the waters were listed as unsafe recreational waters by Michigan in loJiO and '19^9. These waters
were lake Superior along the Marquette frontage, Portage lake along the Hought on- Hancock front-
age, the Tahquomenon River from Newberry to 10 miles below that city, and the Ontonagon River
through Ontonagon, Michigan. Contamination of the lake beach by untreated sewage from L'Anse,
Michigan, is reported to have curtailed' its use. ....
According to the 19^8 joint Report of the Minnesota State Bonn) of Health and the WioconBln
Committee on Water Pollution: "In the area bolow Fond du Lac (St. Louis River), the effects of
the pollution from upstream and of that contributed by Duluth and Superior are most evident dur-
ing the ice coverage period of the winter. Because of the large surface area exposed for reoer-
ation and because of the dilution factor, the river shows sortie improvement in its flow through
the buy area in the open-water season. However, bottom samples showed the presence of sludge
deposits, and biological examinations indicated high pollution throughout mosL of the bay area."
Tills report also states: "The recreational use of the river from Cloquet downstream is
definitely curtailed by existing conditions. A public health hanard exists as a result of bac-
terial contamination from untreated domestic sewage. The Minnesota Department of Conservation
has pointed out that this section of the river is unsulted for fish or fish culture. Although
that Department did not Investigate the harbor area, tho low oxygen conditions, found under ice
coverage and the sludge deposits observed would Indicate that this section also is not favorable
for fishing or fish propagation."
Progress in Pollution Abatement
The water pollution control agencies of tho Grates are actively working on the pollution
problem and are using existing authority- in a judicious and effective manner. They work cooper-
atively with municipalities and industrj.es in solving pollution problems arid enforcing existing
statutes. Their pollution control programs and the cooperation of municipalities with these
programs have resulted in sewage treatment being provided by 51 of the basin's 00 sewered com-
munities. The population served by the existing sewage treatment plants consists of 60 percent,
of the basin's total 'sewered population. Ninety-throe of the 196 industries that have . separate
outlets to the basin's streams have facilities providing some degree of treatment of their wastes.
The water pollution control laws of the States in this basin are adequate to abate existing
pollution and to prevent or control new or Increased sources of pollution, and their activities
are directed toward this end. The state water pollution control efforts have been quite suc-
cessful, but In order for the State agencies to continue their effective and active programs,
they must be furnished with adequate appropriations to attract and hoLd sufficient qualified
personnel to carry on their activities. . . .
Pollution. abatement and control is continuing to advance in this basin, and at. the preeent
time, six municipalities and six industries are actively making plans for the waste treatment
improvements that they need; seven municipalities and one industry have plans for the needed im-
provements approved and ready for construction; while three other municipalities and five
industries have their needed Improvements under 'Construction.
Pollution Prevention Measures Required
Excellent work has been done on the control of pollution within recent years, but to ad-
quately control or prevent all damaging pollution there are still a number of projects that
must be constructed. Analysis of the available data which show stream characteristics, the
amount of wastes discharged to the watercourses, present water quality in the streams, and ex-
isting water uses in relation to generally accepted water quality objectives has enabled the
determination of treatment requirements for the major sources of pollution in this basin.
These requirements consist of 17 new sewage treatment plants, one of which is needed to replace
an existing plant. The other 16 new plants are needed for communities that are now discharging
untreated sewage from a total contributing population of 9^,000 people. Enlargements or addi-
tions are needed at nine existing sewage treatment plants now serving 111,000 people. At 15
municipalities, no conclusions as to the extent of treatment needed have been reached.
It is estimated that the construction of all of the basin's needed municipal sewage treat-
ment facilities which are definitely known to be needed will cost approximately $5,000,000.
This cost estimate does not include such items as sewers, interceptors, right-of-way, etc.,
which will vary with each project and with local conditions.
There are 11 new industrial waste treatment works needed at industries that do not now have
treatment facilities, and one existing plant needs to be abandoned and the waste discharged to
the municipal sewer if adequate treatment is to be obtained. In addition, 11 existing Industrial
waste treatment plants require enlargement or additions in order to reduce to an acceptable level
the industrial pollution load they now discharge to streams of the basin. Many of these needed
facilities will be small, but others will, no doubt, involve considerable construction and expens.
At 95 industries no conclusions as to the extent of treatment needed has been reached. No satis-
factory estimate of the cost of the industrial waste treatment facilities is possible since the
nature of the wastes and possible in-plant improvements will vary widely, even within Identical
industrial groups ,
The determination of the total pollution load from all municipalities and industries would
require securing additional detailed data, which is not warranted since the data now available
are sufficient for the continuation of the comprehensive program and the elimination of many of
the pollutional problems that now exist.
Water Pollution Control Program
The needed corrective measures discussed herein and listed below are based upon studies
and investigations made by the responsible water pollution control agencies in the Statea con-
cerne _, and are part of the pollution abatement program now being carried out by the agencies.
Tha pollution prevention and control measures recommended are intended to restore, preserve,
and protect all reasonable water uses including those now existing and those which may materi-
alize in the immediate foreseeable future. These remedial measures were arrived at only after
a thorough consideration of all water uses in the basin and are considered to "be reasonable and
adequate .
The corrective measures listed below are flexible and are intended to reflect the needfi
for the present situation as it now exists; however, changes in stream characteristics, pol.lu-
tional load, or water uses, may require revisions in the indicated required -treatment at tiome
future date. The program does not include 110 municipalities and industries where conclunlonfi
as to the extent of treatment needed had not been reached.
The essential elements of the program as developed in cooperation with the States concerned ,
consist of the following:
1. Provide the following improvements;
Name and Location Improvements Needed Remarks
MICHIGAN
Bergland New treatment plant Abatement by '
6/1/55 ordered ;
6 , I
Name and Location
Improvement Needed
Remarks
MICHIGAN (Contd.)
Ironwood
Grandview Hospital
Ishpeming
L'Anse
Muni sing
Munis ing Paper Co.
Ontonagon
Wake field
MINNESOTA
Biwabilc
Canton Mine
Higgins No. 1 Mine
Mary Ellen Mine
Mary Ellen Concentrating
Plant
Ruby Mine
Car It on
Chisholm
Cloquet
Northwest Paper Co,
Wood Conversion Co,
New treatment plant
Replacement of existing
treatment plant
New treatment plant
New treatment plant
New treatment plant
Additions to existing
treatment plant
New treatment plant
New treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Hew treatment plant
New treatment plant
New treatment plant
Enlargement of existing
treatment plant
Enlargement of existing
treatment plant
Abatement by 12/31/53
ordered
Enforcement pending
Under construction
Abatement by 6/1/55
ordered
Plans approved
Plans approved
Abatement by 6/1/55
ordered
Plans approved
Abatement by 6/1/5^
ordered
Active planning
Active planning
Abatement by 6/1/55
ordered
Abatement by 6/1/5^
ordered
Under construction
Under construction
Active planning
Active planning
Under construction
Plans approved
Under construction
Active planning
Active planning
Active planning
and Location
MINNESOTA (Contd. )
Duluth
American Steel & Wire Co.
Interlace Iron Corporation
Esko
Eveleth
Floodvood :
Floodvood Coop. Cry. Assn.
Fraser
Gilbert
Kinney
McKinley
Meadovlands
Mesaba Twp. - "'
Knox Mine
Mountain Iron
Two Harbors
Wrenshall
International Refineries
WISCONSIN
Bayfield
Bayfield Fruit Cannery
Benoit
Eenoit Coop. Cry.
Improvements Needed
Enlargement of existing
treatment plant
Weir treatment plant
Nev treatment plant "
Enlargement of existing'
treatment plant
Enlargement of existing
treatment plant
Mew treatment plant
Nev treatment plant
Additions to existing
treatment plant
Enlargement of existing
treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Additions to existing
treatment plant
Enlargement of existing
treatment plant
Additions to existing
treatment plant
Nev treatment plant
Addition to existing
treatment plant
Nev treatment plant
Connect to existing
municipal severs
Nev treatment plant
Remarks
Active planning
Plane approved
Active planning
Plans approved
Active planning
Under conutruetion
Undor conatruction
At: live planning;
Warne and Location
WISCONSIN (Contd.)
Cornucopia
Cornucopia Cheese Fct.
Iron River
Fuhrman Cheese Fct.
Fuhrman Sausage Fct.
Marengo
Marengo Coop. Dairy Assn.
Mason
Mason Milk Products
Me lien
Moquah
Moquah Cheese Fct.
Poplar
Poplar Canning Co.
Saxon
Belmonte Cheese Fct.
Superior
WaslYburn
Improvements Needed
Remarks
New treatment plant
New treatment plant
New treatment plant
New treatment plant
New treatment plant
New treatment plant
New treatment plant
Additions to existing
treatment plant
New treatment plant
New treatment plant
New treatment plant
Plans approved
Plans approved
Active planning
2. Operate all existing and future waste treatment works at a uniformly efficient and high
level in order to obtain maximum benefits from these facilities and permit their most effective
utilization.
3 . Continue the policy of requiring adequate treatment of wastes from both new sources and
expanded use of existing facilities in order to preclude new pollution problems.
PHYSICAL DESCRIPTION
The Lake Superior Drainage Basin as considered in this document consists of the watershed
areas of the streams and rivers that drain into Lake Superior from the United States . The total
land area in the basin is 16,860 square miles with >i6 percent in Michigan, 36 percent in Minne-
sota and the remaining 18 percent in Wisconsin. Lake Superior is the largest body of fresh water
in the world and is the deepest of the five Great Lakes. Its surface elevation varies from 600
to 60U feet above mean sea level, while its bottom at the deepest point is 702 feet below mean
sea level, giving the lake a maximum recorded depth of 1,302 feet.
The principal river of the basin is the St. Louis which has a drainage area of about 3,700
square miles and is an interstate stream that forms part of the Minnesota-Wisconsin boundary. The
Montreal River, which forms part of the boundary between Wisconsin and Michigan, is one of the
smallest of the principal streams in the basin. Other principal rivers are the BolG Brule and
Bad Rivers in Wisconsin and the Ontonagon River in Michigan.
The topography of the basin, in general, is rough, with the land rising steeply from the
lake level of about 600 feet above mean sea level to altitudes of about 1,^00 feat; near the shore,
and 1,800 to 1,900 feet above mean sea level farther inland along the norbhwoBt shore of the lake
in Minnesota. The Wisconsin -Michigan area along the southern shore rises leas abruptly, but the
height of the escarpment is about the same as in Minnesota.
The soil is a mixture of sandy loam and red clay that is not particularly well adapted for
farming. In addition to the low soil fertility, the short growing season it) another factor that
adversely affects agricultural activities. Much of the basin is heavily forentod and the timber
provides a basis for a profitable lumbering industry.
The climate of the basin is continental in the interior, while a modified marine climate ia
found near the lake shore and particularly in the peninsular areas. Those two distinct typos of
climate are reflected in the temperatures, precipitation, and growing noooorin . Extreme tempera-
tures range from -^7 F. to 106 F., while the basin's average tempera buruu range from 8 F. to
12 F. for January, and 6o F. to 66 F. for July. The average annual precipitation in HO to 32
inches with 16 to 19 inches falling during the warm season. Snowfall varied from 'j'j Inchon to
276 inches in different portions of the basin, and the growing season, which a'J.ao rcflecto the
wide climate range, varies from 80 to 130 days in different portions of the btuiln.
Run-off in this basin averages about one -third of the annual precipitation, and the; heavily
forested areas and soil carpet retard much of the run-off providing fairly n toady H broom fJ.owu
even during drought periods. Most of the streams have steep gradient o, runr.inf* from '1.6 to ty
feet per mile, which results in rapid flows and good reaeration eliaracliorinbioii.
The streams of the basin have reasonably uniform flows with bhe low flown occurring in late
fall or early winter. The mean monthly flows, in general, amount l;o about; .1.0 percent ol' tho
average annual flow, although they occasionally drop to about 5 percent of Lin; average annual
flow.
From a pollutions! standpoint, a significant characteristic of tho bun In 'r. oliroaiiiu in the
long period of ice cover during the winter, extending over approximately five monthii. When the
streams are covered with ice, there is little opportunity for Federation of the water and conse-
quently it is difficult for the stream to naturally overcome the effeetu of pollution , IXirinfl
warm weather, the amount of oxygen that stream water can absorb la reduced and bacterial growth
is accelerated. As a result, critical low flows become an important factor, either when the
streams are covered with ice or when the temperatures are high, in determining the wruita treat-
ment necessary to provide water of suitable quality for the legitimate water UI.KJU.
ECONOMIC DEVELOPMENT
aanp Cl Sely followed chan ges in the indus-
men? o? thl m n f * T e baBln had E Bteflfly increase ln Population during the develop-
ment or the lumbering and mining industries, but, now that these industries have exhausted a
large portion of their readily available raw materials and have started to decline, the basin's
population is experiencing a corresponding reduction. The total 1950 estimated population for
the basin was about 1*16,000, a net loss of about 5 percent over the 19^0 census.
P ?M C Snt f thS Pe ple live in ^nnesota, 33 percent in Michigan and the remain-
Percent in Wisconsin. Over half of the basin's population is centered in 12 municipal-
*
^nnnn P pulation of 5,000 to 10,000, and seven with populations in excess
of 10,000. The latter group includes Ashland, Superior, Marquette, Duluth, Virginia, Hitting
and Ironwood, which have a total combined population of 207,000. Duluth, with a 1950 population
ot over 10H,000, has three times the population of Superior, the next largest city. Most of the
i U d P Wlth P pulations over 5 > 000 suffered population decreases during the 191*0-50
n -u i ver j 2 50,000 people live in the Duluth-Superior metropolitan area, the most densely popu-
lated region in the basin. With the exception of strictly localized municipal population cen-
ters, the basin as a whole is very sparsely settled with population densities as low as five
persons per square mile in some places.
The average effective buying income for the basin was approximately $1.210 per person in
19i>0, slightly less than the national average of $1,311 for the same year.
The principal industrial activities of bhe basin include raining, lumbering, fiehing, Carry-
ing, navigation, and during appropriate seasons, catering to the hunting, fishing and tourist
trade .
The first modern copper mine was opened near Copper Harbor, Michigan, about 18M. the same
year that iron ore was discovered -at Negaun^e, Michigan. Copper raining is still carried out in
the basin, but not to the same extent as formerly. At one time, some silver was also produced
in the "basin. The Verndllion Iron Range of Minnesota was discovered in 1850 and the Mesabi Iron
Range in 1866. The first iron ore was shipped from the Verraillion Range in 188^ and from the
Mesabi Range in 1892. Iron mining has flourished since that time and the basin's mines produced
a total of about 76,000,000 tons of iron ore in 1951. The bulk of this (60,500,000 tons) was
token from the Minnesota portion of the basin, while Michigan mines produced, 13,600,000 tons and
Wisconsin mines 1,750,000 tons. The estimated value of the iron ore produced in 1951 was
approximately $500,000,000 (value at mines). Much of the iron ore is processed before shipment,
and at the present time there are 36 beneficlation plants in the Minnesota portion of the basin.
Twenty-four of these plants use a wet beneficiation process and are, therefore, possible sources
of liquid waateu. Additional plants for processing iron ore bearing rock (taconite) are under
construction .
Lumbering began in the basin about 1878 near Baraga, Michigan, and during the period 'between
1891 to 192*1 an estimated 7,700,000,000 board feet of lumber, valued at about $130 million, were
shipped from Duluth Harbor. Heavy cutting and severe fires have reduced available timber to a
point where lumbering has been greatly curtailed throughout the area. However, some lumbering is
still carried out and pulp wood, cut chiefly from second growth, is of economic importance to the
baain.
Fishing has always been an Important source of revenue for all of the States bordering Lake
Superior, In 19^9 j the total value of the fish catch in Lake Superior for Michigan, Wisconsin
and Minnesota was $2,190,111, with the States ranking in the order given. Sports fishing is
increasing, and with hunting and tourist trade, it has assumed an Increasingly important place in
the economy of the basin. Recreational use of the basin's waters Is extensive, especially in the
five national forests and the numerous State forests and parks.
Wisconsin, which la the only State to estimate the revenue from the tourist business In the
basin, places a value on tourist business in the basin at $26,000,000 annually. While the other
11
States have not made specific estimates for this basin, the importance of this industry to the
States as a whole is illustrated "by the fact that the tourist business is ranked the second
largest industry in Michigan and Minnesota and the fourth in Wisconsin. On a Statewide basis,
this industry is valued by Michigan at $700,000,000, while the Statewide value of this industry
in Wisconsin and Minnesota is $300,000,000 and $100,000,000, respectively.
Navigation, with its docks and shipping facilities, is one of the major industries of the
basin. In 1953, there were 285 ore vessels operating in the Great Lakes with a total combined
trip capacity of over 3,300,000 tons. Ore dock facilities in the Great Lakes' ports located in
the basin consisted of 16 docks with a combined storage capacity of 1,33^,150 tone. In addi-
tion to ore loading facilities, the ports of the basin are equipped to handle grain, petroleum
products, coal and other freight. Duluth-Superior Harbor has become the world's largest ore
shipping center and one of the nation's largest shipping centers. With an average 6,000 vessel
arrivals per year, it is second only to New York City in shipping tonnage in the United State a.
The navigation season at Duluth-Superior Harbor averages approximately 233 doyu arid extends
from about April 2 to about Eeceniber 10.
Industrial activities carried out in the basin include steel, cement, pulp and paper pro-
duction, food canning, oil refining., chemical production and metal working.
Because of the short growing season, the extreme low temperatures, and the relatively poor
soil in many parts of the basin, agriculture is not extensively practiced in the area.
IZ
USE OF WATER RESOURCES
--,^S P r? n ! ? SG ! 5 the basin ' s vaters include: domestic and industrial supply, fishing,
wildlife habitat, bathing and other recreation, development of hydroelectric power, navigation
and disposal of waste. The primary use in some areas is industrial and domestic supply, but
the predominant use throughout the basin is in connection with sport and commercial fishing,
hunting and recreation, navigation is also an important water use, but it is limited to Lake
Superior and adjacent waters. In limited areas, there is some use for crop irrigation.
The ground water in the area is generally much harder than surface waters and where
sources of surface supply are conveniently located and free of serious pollution, they have
frequently been developed into municipal supplies. There are 17 municipal water supplies ob-
tained from the surface waters in the basin. These supplies are principally from Lake Superior:
however, other surface sources include Teal Lake, Presque Isle River, Lake Lavinia and Black
River. A total of about 185,000 people are supplied by these surface water supplies. A large
number of households, camps, and others also depend upon surface water for their individual
domestic supply.
Source water quality objectives are among the factors considered in determining treatment
requirements for pollution sources upstream of municipal and domestic supplies. .In appraising
the suitability of water sources for such supplies, State health and water works officials use
Public Health Bulletin 296, "Manual of Recommended Water Sanitation Practice," and comparable
State criteria as guides.
Ten industrial water supplies are obtained from surface sources, but the quantity used for
cooling or process purposes, with or without treatment, is not known. Nearly all of the major
industrial developments in the basin, with the exception of mining, have been in localities
where large quantities of good water are available. Because of the diversity of uses, quality
requirements for industrial supplies vary widely, and no general water criteria have been adopted
as each case must be considered separately. Of general concern, however, are the organic and
biological constituents, temperature, toxic substances and properties of corrosion, incrustation
and slime formation of the available waters .
The lakes, streams and scenic areas within the basin provide sport fishing, hunting, swim-
ming, skating, boating and several other forms of recreation. The lakes and larger streams
contain northern and walleyed pike, bass, perch and pickerel, while the temperatures and dis-
solved oxygen content of the waters in the majority of the smaller streams are suitable for
trout.
The waters of Lake Superior support a substantial commerical fishing industry. The
average annual catch in the United States portion of Lake Superior has risen from a total of
about 6,600,000 pounds in i860 to 17,730,000 pounds in 191*9, with a value of $2,190,111 in 19^9.
The annual lake trout catch has varied from 1,800,000 to 4,500,000 pounds, while the lake her-
ring catch has risen steadily "from about 380,000 pounds in i860 to over 13,20^,000 pounds in
19*t9. Whitefish, another important species, amounted to 1,283,700 pounds in 19^9. Lake Superior.
ranked third among the Great Lakes, following Lake Erie and Lake Michigan in that order, in total
pounds of fish caught during
Hunting is popular in the basin and while it is not a direct water use it depends, to a
large extent, upon the game attracted to the area by the water available for its use and con-
venience. Hunting camps and lodges are generally located where an ample supply of good water is
available for domestic use as well as for aesthetic enjoyment.
Water quality objectives for fishing waters vary with the type of aquatic life to be pro-
tected. The general objectives advocated by the U. S. Fish and Wildlife Service calling for a
balanced aquatic life habitat and limiting concentrations of pollutional substances are usually
used by authorities in this basin. Consequently, toxic and oxygen -consuming wastes and those
which form sludge beds, silt, and other deposits which tend to blanket the stream bottom and
destroy biological life so vital to the existence of fish are considered undesirable.
The waters of the basin are widely used throughout the year for recreational purposes by
vacationists and others, while bathing, of lesser importance because of the low temperature of
the water, is enjoyed during the warm season at the many beaches.
13
Contamination of bathing and recreational waters "by sewage, especially that of recent
origin, is objectionable as water for such use should "be free from floating solids , sludge
deposits, odors and discoloration. Quality objectives for the bacteriological quality of
bathing waters as recommended by the Joint Committee on Bathing Places (joint study by the
American Public Health Association and Conference of State Sanitary Engineers, covered in a
report entitled "Recommended Practice for Design, Equipment and Operation of Swimming Pools
and Other Public Bathing Places," 19^9), together with sanitary surveys and comparable State
criteria, are employed in the administration of pollution control programs a:; related Lo
bathing waters of this basin. Under the Joint Committee interpretation, various classifications
of waters are defined as based on the number of coliform organisms per 100 jiiillilibero of water.
Other indices of quality, as enterococci, are receiving increasing attention; however, sanitary
surveys are employed in pollution control programs as related to bathing waters. Although
quality objectives for water used for non-swimming recreation do not set forth as high a bacteri-
ological criterion, the same basic fundamentals are used by the States in their programs.
Ample flow, favorable river gradients, and the topography of the area make the streams of
this basin especially well suited for the development of water power. The power needs of the
mining and paper industries and others have led to the installation of power dams at several
locations in the watershed. There are 12 hydroelectric developments In Michigan with an in-
stalled generating capacity totaling ^5,370 kilowatts. These developments are located on the
Montreal, Ontonagon, Sturgeon, Pall, Dead, Carp and Au Train Rivers. Three of the .lareetit water
power developments in Minnesota are located on the St. Louis River at Scarilon, Thompson mid Fond
du Lac. Two other dams located in Cloquet supply power for the wood products induutrlcu there
and also supply a source of process water and ponds for floating logs. Other dams in the Minne-
sota portion of the basin are small and are used either for control of water levels or for
limited power sources. There are four power dams in the Wisconsin portion of thu bars in, with two
on the Iron River and one each on the White and Bad Rivers .
Navigation has been a significant factor in the development and growth of tlio himiLti. The
streams and lakes were the main avenues of traffic for the early fur traders and settlers . Later,
the waterways were used to move the basin's lumber and ore to market and thin economical trans-
portation was largely responsible for the full development of these resources. In WjJ, the
total tonnage leaving and entering Lake Superior through the St. Mary'u Biver amounted to over
128 million tons. Freight traffic for the Duluth- Super lor Harbor during the same year and which
is included in the above figure brought in 5,000,000 tons of coal, 916,000 terns oi' stone and
rock and 217,000 tons of gasoline and petroleum products and some cement, automoblleis and manu-
factured iron and steel. Outgoing freight included 1,800,000 tons of wheat, 3, '100,000 tons of
crude oil and 6'f,000,000 tons of iron ore and some scrap iron, molaricuu, flaxsend, corn, barley
and iron and steel products.
All of the above water uses are considered essential, for the economy, health and wuli'urt: of
the people of the basin, and protection of the water resources from pollution is 1101:011 imry for
the continued development of the area. Treatment of the wastes discharged to the watereourLic
will be necessary to achieve pertinent water quality objectives and to maintain the iitreumi; and
lakes of the basin in a suitable condition for the indicated water uses.
14
POLLUTION DISCHARGED TO SURFACE WATER
There are four large sources of pollution in the "basin for which the amount of pollution
discharged to the watercourse has been determined. These are the City of Superior, Wisconsin,
the two paper mills at Cloquet, Minnesota, and the paper mill at Munising, Michigan. There are
other municipalities and industries that are discharging undesirable amounts of polluting
wastes, particularly the food processing plants, the other paper mills and some of the munici-
palities located on small streams, but the strength and pollutions! characteristics of the waste
reaching the watercourse from such sources have not been precisely determined.
Over 80 percent of the basin's total 1950 population live in the 80 communities which have
sewerage systems, and 3^2,775 of the residents of these communities are served by the municipal
sewers. The sources of untreated, partially treated, and treated municipal wastes which are
discharged into the surface waters of the basin are individually listed in the Appendices and
summarized in Table A. The communities in the basin which have sewerage systems and which are,
because of these systems, sources of municipal wastes include one city serving 100,000 people,
one city serving 35,000, six serving 10,000 to 20,000, five serving 5,000 to 10,000, twenty-
eight serving 1,000 to 5,000 and twenty-nine serving less than 1,000.
TABLE A
SEWERED MUNICIPALITIES*
Amount of Pollution Discharged
Municipalities* Number Population Served by tQ Watercourse fa terms of
Severage System equivalent number of people )**
Having data on pollution
load discharged to water-
course 2 36,900 6if,ooo
Having population data
available (Data on pollu-
tion load to the water-
course incomplete or not .
available) ?8=/ 275,875 Not applicable
TOTAL 80 312,775 XXX XXX
*Includes incorporated or unincorporated municipalities, other legal bodies as sanitary dis-
tricts, counties, towns, significant institutions, resorts, recreational centers, or other
population centers; and industrial wastes discharged into municipal sewerage systems,
**Populatiori Equivalent (PE) is a method of expressing the amount of organic waste in terras of
an equivalent number of persons. The Calculated, Population Equivalent is based on 0.167 pounds
of Biological Oxygen Demand per capita per day. This is a measure of the amount of oxygen re-
sources of the receiving stream which will be utilized in the oxidation process . It is not in
itself a measure of health hazard.
I/Includes nine sources in which the population served is undetermined.
The activities of the State Departments of Health and State water pollution control agencies
have resulted in 51 of the communities providing sewage treatment facilities for their wastes,
However, the pollution control secured by some of these plants is not entirely satisfactory ab
present because some are not being operated satisfactorily, while others do not have adequate
capacity or facilities to produce the degree of treatment now required by the water uses down-
stream. Because of age, or for some other reason, 11 of these plants no longer have adequate
capacity to handle the loads imposed on them and cannot reduce the pollution characteristics of
the waste to the extent needed. Operation at seven plants is not considered to be entirely
satisfactory, and pollution is not reduced as much as it could be by the efficient use of exist-
ing facilities.
15
Twenty-nine municipalities, serving a combined population of 117? 520, do not treat their
wastes. The largest of these is Superior, Wisconsin, which is discharging a waste with a popu-
lation equivalent of 60,000, although the population served by the sewers in 35,000, indicating
that the Superior municipal sewers pick up a sizable industrial waste load. Eleven other cities
with populations over 2,500 do not provide treatment for their wastes.
A summary of the industrial sources of pollution which discharge their wastes directly into
the "basin's watercourses is shown below. These sources are also shown in Table D, In bho sec-
tion discussing prevention measures in effect, where they ore tabulated ace or dint 1 ; to the type of
industry and the treatment provided for their wastes.
TABLE E
SEPARATE INDUSTRIAL OUTLETS
Amount of Pollution Discharged to
Industries Number Watercourse (in terms of equlva-
lent number of_pcople
Producing organic wastes
13
592,750
Producing organic wastes
17
Not known
Producing inorganic wastes
mi/
Not applicable
TOTAL
I/ Includes eleven industries that also produce organic waste.
2/Total adjusted to correct for duplication noted in footnote I/.
There ore 196 industrial sources of pollution which do not discharge their woul;eii La u munic-
ipal sewerage system. Ninety-three of these are known to provide tiomc degree of trent,m<.:nl; for
their waste and 52 are known to provide no treatment. Basic data on individual induntrlnl
sources of wastes are given in the Appendices. Thirty of the industries discharge oxyi'.t'ii-eonuura-
ing organic wastes, arid 177, the majority of which are iron mines and iron ore bunoficlnblon
plants, discharge inorganic wastes.
On the basis of population equivalent, the total known sewage and organic indun Ir J.u'1. wautc
load discharged to the basin's watercourses is equivalent to the wnotou from over (>50,000 people.
This is 50 percent greater than the entire population of the busin, although it tioiMi not include
the wastes from 78 municipalities and 17 industries for which specific data have not; buon
reported.
16
DAMAGES TO WATER RESOURCES PROM POLLUTION
Many of the basin's streams and lakes are relatively free of pollutional damage as they do
not receive polluting materials, while the amount of such material that others receive does not
exceed their capacity for assimilation of such pollution consistent with the present water uses.
However, excessive pollution has damaged water uses in certain areas of the basin and posed a
threat to the public health in other areas. The amount of damage varies with 'the degree of pol-
lution and depends upon the extent to which the major existing water uses have been affected or
potential future water uses discouraged by the unsatisfactory water quality resulting from the
pollution.
Water use damage results from bacterial pollution; deoxygenation by organic materials, tox-
icity, increased hardness, or the presence of solids, turbidity, color, odor, or taste-producing
substances. Most of the damages that have occurred within the basin have been the result of
depleted dissolved oxygen or high bacterial counts in the waters. In the mining areas, however,
the damages have, in general, been caused by excessive turbidity and deposition of solids.
Mine wastes discharged into Sieinen's Creek adversely affected the municipal ground water
supply of Ironwood, Michigan, by increasing its hardness to about 900 parts per million and its
chloride content to 1,100 parts per million. The city relocated its well field, but the mine
waste pollution continued to threaten Its supply and the State instigated action which led to the
temporary diversion of the mine drainage to another watershed with provision for removal of
solids and turbidity. Ironwood's water supply has now been protected from pollution, but the
city is still discharging its own untreated sewage which is polluting the Montreal River and ad-
versely affecting water users below.
In 19*19, the Marguette City Health Officer expressed concern over the increase in coliform
organisms in the city's raw water, which he attributed to the untreated wastes from that com-
munity. Objectionable tastes and odors were also reported experienced at intervals due to
chemical wastes .
High coliform bacterial counts of over 2^0,000 per 100 cubic centimeters have been obtained
in the Montreal River and have been attributed to the municipal wastes from Ironwood, Michigan,
and Hurley, Wisconsin. These wastes caused serious pollution in this stream extending from
within the corporate limits of the two municipalities to at least five miles below Ironwood. The
State of Michigan placed this river on the 1950 list of waters which were unsafe for recreation,
swimming, and allied purposes, beginning at Ironwood and extending for 15 miles below that city.
Hurley, Wisconsin, completed a sewage treatment plant in 1953- Ironwood, Michigan, has failed to
comply with an order issued by the State to provide treatment by December 31, 1953, and enforce-
ment action is pending.
Untreated municipal wastes have caused serious pollution in several areas and the waters were
listed as unsafe recreational waters by Michigan in 19*18 and 19^9, These waters included Lake Su-
perior along the Marquette frontage, Portage Lake along the Hought on -Hancock frontage, the Tahq.ua-
menon River from Newberry to 10 miles below that city, and the Ontonagon River through Ontonagon,
Michigan. Contamination of the lake beach by untreated sewage from L'Anse, Michigan, is reported
to have curtailed its use .
The polluted condition of the St. Louis River from Cloquet, Minnesota, to the mouth curtails
recreational use of the water, according to a 19*f8 report by the Minnesota Department of Health
entitled "Report of the Follow-up Survey of the Pollution of the St. Louis River." According to
this report, a public health hazard exists as a result of bacterial contamination from untreated
domestic sewage and the Minnesota Department of Conservation considers this section of the river
unauited for fish or fish culture.
Oil pollution in the .Duluth-Superior Harbor has been the cause of complaints received by
State and Federal agencies. Unauthorized discharge of oil and oily water from vessels is sus-
pected to be the source of this pollution, although this has never been definitely established,
The Munieing Conservation Club registered a complaint in 19W regarding pollution of the
Anna River and Munising Bay by the city of Munising. The complaint alleged that pollution of
this river and the bay by the city resulted in trout kills and also indicated that the paper mill,
as well as the city, was an offender. The Michigan Water Resources Commission cited the paper
17
mill in 19^8 Tor failure to control pollution and has ordered 'the city to provide treatment of
sewage by June 1, 195*1-
The loss incurred through reduction of property values along polluted waters should not be
overlooked when pollution damages are being considered. The condition of the available water is
an important factor when locating a home, camp or recreational development on or near waterfront
property. There is little doubt that property values have declined due to pollution in the
"basin, especially along the streams and beaches that have hud to be declared aa unfit for recre-
ational and swimming purposes .
18
BENEFITS RESULTING ITCOM POLLUTION PREVENTION AND ABATEMENT
Water pollution in this basin has not been widespread, but there are some areas where
correction of polluted conditions are necessary and desirable to restore the affected waters to
their most useful condition. By abating existing pollution, the damaged water uses can be re-
stored and, by preventing additional pollution, future vater uses con be preserved. "The existing
sewage and waste treatment facilities now operating in the basin have been of great Value in re-
ducing the damage of the receiving waters to a minimum and in correcting some of the damage that
had developed.
Pollution abatement activities are costly, but the cost is generally well justified con-
sidering the long-range benefits which accrue. The use of the surface waters for commercial and
sports fishing and for recreation is of considerable benefit to the economy of the entire basin
and pollution control to protect water quality for these uses Is well worth while.
Preserving and improving the quality of surface water sources of public and Industrial sup-
plies is of specific benefit to the industry and municipality whose water supply is now being
threatened or damaged. Monetary benefits will result from the production of safe potable water
for domestic use and acceptable process water for industry at minimum treatment costs.
The benefits to be derived from the provision of clean water for recreational use in an area
so well adapted to such activities are self-evident. The provision of adequate treatment of
wastes is required in the interest of aesthetics as well as for the reduction of the threat of
water-borne disease. Effective pollution prevention measures will Improve the water quality and
provide a safer environment for swimming, boating and fishing In those areas where bacterial
pollution Is now greater than is considered safe or desirable for these water uses.
Pollution control measures are necessary to assure continued and increased benefits from
oath commercial and sports fishing. Abatement of pollution will aid In promoting wider develop-
ment of water uses, and prevention of future pollution will assure continued use. Wider develop-
ment of the water resources for recreational use will attract additional revenues to the area
from vacationists and sportsmen, but only if there are clean waters available for their enjoy-
ment.
The availability of good quality water is a requisite to the development of many industries
and a major factor in locating Industrial plants. Thus, adequate pollution control programs
which Insure water of desired quality are of economic Importance to the basin in maintaining ex-
isting industry and In attracting additional industry to the area.
POLLUTION PREVENTION MEASURES IN EFFECT
Over three -fourths of the total basin population live in the 80 municipalitie
served lay sewerage systems. Fifty-one of these communities with a total combined
lation of 195,000 have also provided sewage treatment facilities consisting of tw
primary treatment plants and thirty secondary sewage treatment plants.
TABLE C
EXISTING MUNICIPAL* TREATMENT FACILITIES
Degree of Number of Number of
Treatment Provided Municipalities Plants
O'l
Primary 21 C - L
Sscondary
Ho Treatment 29
*Includes incorporated or unincorporated municipalities, other legal bodlefi as san:
tricts, counties, towns, significant institutions, resorts, recreational centers o)
population centers, and industrial wastes discharged into municipal sewerage uyster
I/Includes nine in which the population served is undetermined.
As shown in Table D, mining and its associated primary metals industry have tl
number of industrial establishments that are discharging wastes directly Into the >
Forty percent of these industries are providing treatment for the Inorganic wanton
produce. This treatment generally consists of sedimentation for the removal of nue
and in many cases the industry reuses the clarified water for further proccualng.
easing Industry has the largest number of establishments that are discharging organ
However, the paper industry is by far the most important organic vaotc producing ir
pollution standpoint. All four of the paper mills have provided treatment facilltJ
half of the food processing plants are treating their wastes. A total of 93 induol
in the Tmein are now providing some type of treatment for their wastes. One of the
essing plants has provided treatment that is equivalent to secondary decree of aei*
All of the other industries have provided primary or equivalent type of treatment *
case of inorganic waste treatment, is generally sufficient to prevent damage to wat
ever, in many cases, primary treatment is not adequate to protect watercourses fron
of organic pollution.
20
TABLE D
EXISTING INDUSTRIAL WASTE* TREATMENT FACILITIES
Type of Industry
Number of Industrial Plants Having:
Number of
Plants
Treatment
Facilities
No Treatment
Facilities
Undetermined
Facilities
Food and
Kindred Products
Paper and
Allied Products
Chemical and
19
10
Allied Products
2
2
Petroleum Products
1
1
Primary Metals
28
IT
2
9
Fabricated Metals
2
1
1
Mining
137
57
39
in
Miscellaneous
3
3
TOTAL
196
93
52
51
^Industries having separate outlets and discharging "wastes directly to -watercourse.
A study of the adequacy of the existing treatment facilities shows that 39 of the 51 sewage
treatment plants have satisfactory capacity to handle the present load, while 11 do not have
adequate capacity,
TABLE E
ADEQUACY OF EXISTING TREATMENT FACILITIES
Adequacy with Relation to
Foisting
Treatment
Facilities
Total
Number
Capacity
Operation
Satis-
factory
Unsatis -
factory
Undeter-
mined
Satis-
factory
Unsatis-
factory
Undeter-
mined
Municipal
51
39
11
1
35
7
9
Industrial
93
75
9
9
77
5
11
The majority of the industrial waste plants have adequate capacity to provide a sufficient
degree of treatment to protect the downstream water uses. Six of the nine that do not have ade-
quate capacity are plants treating organic wastes at food or paper industries. Practically all
of the industries that have provided waste treatment facilities are operating them in a satis-
factory manner and are obtaining maximum efficiency out of the available facilities.
The first treatment plants in the "basin were constructed at Gilbert, Minnesota, and Iron
River, Wisconsin, in 1915. Nine municipalities constructed plants during the 1920's, and five
others placed plants into operation "between 1930 and 191*0. In 19*10, five more plants were con-
structed in the basin, and then there was a lull in construction until 1952 when three munici-
palities completed plants designed to serve a total of about 12,^00 people. Seven municipalities
lompleted plants in 1953 that were designed to treat the wastes from a total population of ^5/000.
21
The largest of these plants served 16,000 and the smallest was designed Tor ^20. One industry-
constructed a waste treatment plant in 1953-
Practically all of the basin drainage area located in Wisconsin, and in Houghton and
B&raga Counties in Michigan is no in organized soil conservation districts . The Soil Conser-
vation Service, working through these districts, provides technical assistance to the farmers
in installing conservation practices, such as contour farming, contour and wind strip cropping,
terracing, pasture Improvement, tree planting and improved rotations. These practices tend to
reduce the sediment loads of the streams in the watershed, "bringing about a reduction in the
damage to fish life, silting of reservoir and stream channels and damage to agricultural lands.
The water pollution control laws of the States are adequate to abate existing pollution
and to prevent or control new or increased sources of pollution. The water pollution control
agencies have been given sufficient legal authority to carry on their programs and they have
used this authority Judiciously and effectively in carrying out their work. The following
brief analysis presents the salient features of water pollution control legislation of the
States in the basin .
The Michigan Water Resources Commission has the general over-all authority relating to the
control of pollution of any waters of the State. The Department of Conservation and the State
Health Department also have related water pollution control functions.
The Water Resources Coinmission consists of the Director of Conservation, the Commissioner
of Health, the Highway Commissioner, the Director of Agriculture and three other members ap-
pointed by the Governor to represent industry, municipalities and conservation interests. The
Commission has the power to establish pollution standards for State waters in relation to their
public use; to make rules and regulations; to make determinations of existing and possible future
pollution and to issue orders to secure correction of such pollution. It has the power to hold
hearings and to enforce its regulations and orders; to make surveys, studies and investigations;
and to cooperate and negotiate with other governments, governmental units and agencies in matters
concerning the water resources of the State.
The Michigan Department of Conservation has the duty to prevent and guard against the pollu-
tion of lakes and streams for protection of fish within the State and to enforce all laws pro-
vided for that purpose; and the Michigan Department of Health has the authority to make and en-
force rules and regulations governing the method of conducting and operating sewerage systems, to
review plans and specifications for such systems and to issue .permits for their construction. It
also has the duty to inspect sewerage systems and if they are found inadequate it may order such
alterations as are deemed necessary.
In Minnesota, a comprehensive State water pollution control act was enacted in 19^5 with
authority vested in a Water Pollution Control Commission. The State Department of Health also
has certain water pollution functions relating to public health and sources of water supply for
domestic use. The Water Pollution Control Commission is composed of the Secretary and Executive
Officer of the State Board of Health, the Commissioner of Conservation, the Commissioner of
Agriculture, Dairy and Food, the Secretary and Executive Officer of the State Livestock Sanitary
Board and three members at large who shall represent municipal government, industry and general
public. The Commission ie given the power and duty to make such administrative classifications
of the waters of the State as it may deem advisable and establish reasonable pollution atandards
of the waters of the State in relation to the public use to which they are or may be put. Also,
the Commission has the power and duty to approve plans for disposal systems; to issue, continue
in effect, or deny, permits for the discharge of wastes or for the installation or operation of
disposal systems or parts thereof j and to revoke or modify any permit, when necessary, to pre-
vent or abate pollution of any waters of the State. The Commission is authorized to hold hear-
ings and issue orders, if necessary, to prevent pollution. Although the Commission is a
separate and distinct entity, all investigations and other staff -functions are. performed by the
State Dapartment of Health ,
In Wisconsin,, the primary responsibility for the water pollution control program has been
vested in the Committee on Water Pollution. The State Board of Health also has comprehensive
water pollution control functions. The 192? Wisconsin State Legislature created the Committee
on Water Pollution and designated its powers and duties. This legislation was called the State
Water Pollution Control Act and was last revised in
22
The Committee on Water Pollution consists of th* m-o+a nv^ * w 4
-Pntnt-ivP of -t-hn P,ivn q 01 ,,j ; State Chief En Sineer, and a member or other
^entat.i.ve oZ the Public Service Commission designated by the Commission- a Consent-inn Tom
loner or an employee designated by the ConservaSon Coiss onHh elSte iSS^SSr or
i ^ember or the Board of Health designated by the Board; and the State SaniSylngineer o?'
>-blter engineer appointed by the State Board of Health. *".i."y uigineer, or
Se SSlBS ft ??nn a nS P i lution J s S 1 the power and duty to exercise general supervision
nf ^n n S n enforcement of all laws relating to the pollution of the surface
n n M is authorized to issue general orders and adopt rules and
0S ulations applicable throughout the State, and to issue special orders directing particular
WJie T? I 3 ff UrG G T Pf r f in E results toward control of pollution of surface waters W ithin a
Pacified Ume, and can obtain enforcement of its orders through court action. The Committee
lci o has the authority to make studies and investigations, as well as conduct scientific experi-
and research, and may enter into agreements vith other States and with the Federal Govern-
The Minnesota Water Pollution Control Commission and the Wisconsin Committee on Water Pollu-
have in force the following joint resolution relative to the abatement of pollution on the
Louis River, St. Louis Bay, Superior Bay and Lake Superior:
the St. Louis River, St. Louis Bay, Superior Bay and Lake Superior are interstate
waters common to the states of Minnesota and Wisconsin and pollution thereof origi-
nating In one state does or may adversely affect public water supplies, public health,
or public rights in both states, thus creating a problem of common interest, and re-
quiring correction "by said states;. and
sewage and industrial wastes are now discharged into said waters and their tributaries
to an extent affecting their cleanliness and purity, causing the same to be injurious
to public health, harmful for recreational use, and deleterious to fish and wildlife;
and
-protection of the public health and preservation of public rights demand that said
waters and their tributaries shall be made suitable for legitimate uses; therefore
be it
IB SOLVED: That tho Minnesota Water Pollution Control Commission and Wisconsin Committee on Water
Pollution do hereby agree to follow the established programs for the improvement of
the quality of said interstate waters and their tributary streams whereby each state
DhoU. require the effective prevention or correction of pollution originating within
that otatG as provided by the laws of such state to the end that said waters and their
tributaries may ha maintained or rendered suitable for appropriate public uses; and be
;l.t further
: 1*T f3 OLVED ; 'i'l i at adoption of this resolution by the water pollution control agency of each state
uhall he evidenced by the signature of its executive officer."
A joint resolution concerning the Montreal River, as well as other streams common to both
.ta/kcBj huo been adopted by the Michigan Water Resources Commission and the Wisconsin Committee
i Water Pollution aa follows :
the MONTREAL RIVER, the BRULE RIVER and the MEKOMIKEE RIVER are interstate streams
common to the States of Michigan and Wisconsin and pollution thereof, and of their
tributaries, originating in one state does or may adversely affect public health or
public right B in both states, thus creating a problem of common interest requiring
correction by said states; and
H3SREAS. protection of public health and preservation of public rights require that pollution
of said waters by sewage and industrial wastes injurious to public health, safety or
welfare, or to domestic, commercial, industrial, agricultural, recreation or other
pursuits, or to wildlife, fish or aquatic life be abated or prevented; now therefore
IS 33? RESOLVED, that the Michigan Water Resources Commission and the Wisconsin Committee on
Water Pollution each does hereby agree to require the effective abatement of existing
pollution and prevention of additional pollution of said streams and tributaries from
33
sources within the "boundaries of its state as provided "by the laws of such state to
the end that said waters may "be maintained or rendered suitable for the purpose B here-
tofore defined arid that in furtherance of these objectives, the guiding policy shall
be that facilities for treatment of sewage 'shall provide at least effective sedimenta-
tion and disinfection with such secondary or higher degree of treatment as condition;;
may require and that facilities for treatment or control of industrial was tea shall
provide the degree of protection against pollution warranted in each case; and,
"BE IT FURTHER RESOLVED that adoption of this resolution by the water pollution control agency
of each state shall be evidenced by the signature of its executive officer . "
24
POLLUTION PREVENTION MEASURES REQUIRED
To obtain the maximum utilization of the water resources of the Lake Superior Drainage
Basin, sewage and industrial wastes discharged to the streams and lakes must be treated to in-
sure that water of suitable quality is available for all water uses . In view of the importance
of industry and recreation to the economy of the region, the surface waters available for these
uses should be maintained at a quality level that will stimulate the greatest development of
these uses.
Water quality objectives pertinent to this basin have been discussed in the section of this
report entitled "Uses of Water Resources." The type and design of each individual sevage or
waste treatment plant depends upon several variable factors th&t can be determined only after an
engineering survey of local conditions. The exact amount -and type of wastes discharged are not
known for some of the smaller problems in the basin, .but preliminary studies and estimations are
sufficient to set forth the abatement needs, and a local engineering survey will determine the
exact type and degree of treatment needed. To insure that treatment facilities will satisfac-
torily protect the water uses and to safeguard the taxpayers' investment, the State water pollu-
tion control agencies review plans before construction is undertaken.
The degree of treatment required is influenced by the amount of dilution water available
during periods of critical low flow and the water uses to be protected. Two separate and dis-
tinct critical stream flow periods occur in this region; the first during fall, and the
second during winter. Rising water temperatures reduce the capacity of the water to absorb and
hold oxygen during low flow periods which occur in hot weather, while, at the same time, the
high temperatures accelerate the rate of biological activity with a corresponding increase in the
amount of oxygen required. During the winter low flow period, heavy and prolonged ice cover pre-
cludes or diminishes reaeration of the water; biological activities, while progressing at a
slower rate than in warm weather, must be wholly supported by oxygen contained in the receiving
waters prior to the discharge of pollution. Thus, where the quantity of waste discharge is
large, as in areas where industry is concentrated or where large cities are located, undesirable
water conditions are accentuated during low flow periods. At those points where stream flows
may become critical, a high degree of treatment is essential to keep residual pollution loading
within the stream's capacity for assimilation during such critical periods.
A number of studies, surveys and investigations have been conducted by Michigan, Minnesota
and Wisconsin during recent years and these have provided a sound foundation of facts upon which
the pollution abatement program has been based. The collected data have permitted a critical
evaluation of the effect of pollution upon the receiving waters and have enabled the States to
institute proceedings which will secure protection for water resources of the basin. Construc-
tion of these needed facilities at an early date will restore, preserve and protect existing
water uses and those uses which may materialize in the immediate foreseeable future. These con-
trol measures were determined only after a thorough consideration of all water uses and are con-
sidered to be reasonable and adequate. The corrective measures are intended to be flexible and
to reflect the needs of the existing situation; however, changes In stream characteristics, pol-
lution load or water uses may require revisions in the indicated treatment needs at some future
date.
Considerable progress had been made in providing municipal and industrial waste treatment
facilities, but additional plant construction, replacement, and expansion are still needed before
all waters of the basin are adequately protected from the effects of municipal and industrial
pollution. There is also a need for improved operation at some of the existing treatment plants
as failure to operate these waste treatment works at, or near, maximum efficiency means that
clean streams for which funds were spent are not obtained.
Pollution prevention measures required to control and abate the damaging effects of pollu-
tion in the streams of the basin are described herein. Pollution control programs should be
dynamic and flexible as they must change to meet changing conditions. However, the population
in most of this basin has been relatively stable for the past 20 years, so it is reasonable to
expect that, when the presently needed facilities are completed, the streams of the basin can
be maintained in good condition as long as the treatment facilities are maintained and operated
properly .
Sixteen municipalities are in need of new sewage treatment plants to serve a total popula-
tion of 9k } 000 as shown in Table F, while one community needs to replace its existing plant with
25
a new one. Plans have been prepared and approved! for the plant to serve Superior, Wisconsin
which Is the largest city now discharging untreated Gewage to the basin's waters. Plans have
also been approved for the new sewage treatment plants needed by Ishpemingj Munieing and L'Anae
Michigan; Carlton and Floodwood, Minnesota; and Mellen, Wisconsin. Chisholm, Minnesota; is now'
constructing the plant which it needs to protect its receiving waters. When the above eight
plants have been constructed and placed in operation, the number of people discharging untreated
sewage to the basin's watercourses will be reduced to less than 10 percent of the "basin's total
sewered population. Four of the other communities now without sewage treatment facilities are
actively planning new plants, leaving less than five percent of the bauin'a sewage for which
treatment does not exist or is not "being planned.
TABLE F
REQUIREMENTS FOR MUNICIPAL AND INDUSTRIAL HASTE TREATMENT PLANTS
Municipal Industrial
Reouireraent^ ^^ f Population Served Plants
Requirements Plants by Facilities Meeds d
New Plant 16 93/790 11
Enlargement or Addition
to Existing Plant
9
110,900
11
Replace Plant
1
170
Connect to Manicipal Sewer
1
No Project Required
39*
03,605
78
Extent Undetermined
15
2^,230
95
Mountain Iron, Minnesota, is constructing the sewage treatment plant which it needa. while
Esko and Duluth, Minnesota, are planning to enlarge their planto. It la Gotlinated that the con-
struction of the municipal facilities which are Icnown to be needed will coat about $5,000,000.
The adequate control of industrial waste pollution requlroo the construction of 1.1 new
of or additions to 11 existing plants. The moot important
b redUMd ' * U
TABLE G
STATUS OJ 1 TREATMENT WORKS PROJECTS TO ABATE POLT.UOJION
January 1,
Status of Project
Number
Municipal
Industrial!
No Formal Action
a
1
Plans under Preparation
6
6
Final Plans Approved
7
1
Under Construction
3
5*
Status Undetermined
8
ll
i 4*. J .uuxs*f utie pj.am much ia expanding its facllJtlea
although there is no current need for such expanoion.
The pollution abatement program is moving ahead in this basin with three sewage and five
industrial waste treatment plants under construction and final plans approved for eight others.
Six industries and six municipalities are actively engaged in preparing plans for the facili-
ties that are needed to abate pollution caused by their wastes.
Intensification of State water pollution control educational programs is important to long-
range planning and good administration by water pollution control agencies. The undesirable
effects of pollution, on public health and water conservation, must be presented to the public
if its support of water pollution control measures is to be expected. Responsible officials of
both municipalities and industries should become acquainted with expected treatment needs so
that the needed improvements can be planned for well ahead of the time when these needs become
an actuality and before damage to the waters has occurred.
27
APPENDIX
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