Federal Government engaged in research and development work on any aspect of waste management.

(b) The Secretary is hereby authorized to request, and such departments and agencies are directed to grant, the use of the waste disposal installations and facilities of any Federal Government department or agency for the purpose of testing and evaluating new methods, procedures, and equipment for waste management: Provided, That in the judgment of the department or agency concerned such test and evaluation work will not disrupt, disorganize, or in any way interfere with the normal activity, operations, and functioning of such agency or department: Provided further, That any expense incurred in such test and evaluation work above and beyond the normal and usual expense of operating the waste disposal installations and facilities of the agency or department concerned shall be borne by the department.

APPROPRIATION AUTHORIZATION

SEC. 5. There are hereby authorized to be appropriated for the fiscal year beginning July 1, 1966, and for each of five succeeding fiscal years, such amounts as may be necessary for the purposes of this Act.

DEFINITIONS

SEC. 6. When used in this Act

(a) the term "Secretary" means the Secretary of Health, Education, and Welfare;

(b) the term "Department" means the Department of Health, Education, and Welfare;

(c) the term "waste" means the unwanted solid, liquid, and gaseous materials from agricultural, industrial, commercial, domestic, and community production and consumption activities, discarded or discharged into or onto the atmosphere, water courses, or the ground; (d) the term "waste management" means the planned, organized, and efficient collection, treatment, reclamation, and disposal of waste to minimize or prevent air, water, and soil pollution; and

(e) the term "research" means (1) studies, investigations, and experiments for the development of basic and applied knowledge bearing on waste management in the physical, biological, social, and earth sciences; and (2) the design, development, and testing of equipment, methods, and processes for waste management.

[S. 3225, 89th Cong., 2d sess.]

A BILL To provide that plans and regulations established pursuant to section 10 of the Federal Water Pollution Control Act for the control of water pollution shall apply to vessels (including boats) and marinas

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That section 10 (c) of the Federal Water Pollution Control Act is amended by inserting at the end thereof a new paragraph as follows:

"(8) State criteria and plans for the purpose of paragraph (1) of this subsection and standards established by the Secretary pursuant to paragraph (2) shall include such provisions for the control of pollution from vessels (including boats) and marinas as may be necessary for the purpose of this section."

[S. 3226, 89th Cong., 2d sess.]

A BILL To amend the Federal Water Pollution Control Act in order to authorize Federal assistance in carrying out short-term training programs in treatment work operation and maintenance

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That section 5 of the Federal Water Pollution Control Act is amended by inserting at the end thereof a new subsection as follows:

"(g) (1) The Secretary is authorized during the fiscal year ending June 30, 1967, and the three succeeding fiscal years, to make grants to any State, municipality, regional or interstate agency to pay not to exceed 50 per centum of the cost of a short-term training program in treatment works operation and maintenance for persons employed or to be employed in such works.

"(2) For the purposes of this subsection the term 'cost of a short-term training program' shall include, in addition to the cost of operating such program, the cost of developing such program, and necessary expenses incurred by persons while receiving training under such program.

"(3) There is authorized to be appropriated not to exceed $500,000 for the fiscal year ending June 30, 1967, and each of the two succeeding fiscal years, for the purpose of carrying out the provisions of this subsection, The amount appropriated pursuant to this subsection for any fiscal year shall be distributed among the various States in accordance with criteria, determined by the Secretary to be best suited to carry out the purpose of this Act in an equitable manner, and established by regulation."

Senator MUSKIE. S. 2947 has special significance because it is a subcommittee measure, based on extensive work by all members of this subcommittee, including Mr. Boggs, Mr. Randolph, Mr. Moss, Mr. Bayh, Mr. Harris, Mr. Tydings, Mr. Pearson, and Mr. Murphy. want to take this opportunity to thank them for their efforts which have made this task easier.

I

When the chairman of the Public Works Committee, Senator Pat McNamara of Michigan, established the Special Subcommittee on Air and Water Pollution in 1963, he instructed us not to merely consider legislation then pending before the committee. Recognizing the serious nature of air and water pollution problems, and potential as well as existing adverse effects on the health and welfare of the American people, Senator McNamara charged the subcommittee with creating legislation which would meet the needs of the Nation.

A comprehensive staff report prepared for the subcommittee revealed that information regarding water pollution was sorely deficient. The subcommittee needed that information if it was to determine the scope and extent of the pollution problem and, more importantly, the monetary requirements to get the job done.

In 1965, while hearings were held on pending legislation, the subcommittee conducted additional field hearings in seven major cities across the Nation aimed at obtaining information and views which went beyond the immediate legislative problems. The subcommittee heard pollution control experts, citizens, political leaders, and industry representatives. We learned much about specific pollution problems in different areas of the country, and we gained additional insights into the alternative pollution control and abatement techniques available to us.

On the basis of the comprehensive information accumulated, the subcommittee published "Steps Toward Clean Water, 1966," a basic and informative document; from that report the subcommittee developed a series of recommendations for new legislation designed to meet the needs expressed at these hearings.

S. 2947, the subcommittee bill, is a response to most of those recommendations.

We found that dollar limitations on Federal grants resulted in discrimination against our larger cities and metropolitan areas in financing needed sewage treatment facilities. In many cases the Federal grant was meaningless. S. 2947 eliminates those dollar limitations.

We found that the States were not moving rapidly enough with matching financial grant programs. The subcommittee bill provides incentives for State action.

We found that some cities were in such critical financial condition that they could not meet their share of the cost of plant construction. S. 2947 provides a Federal loan program to alleviate this problem. We found that program grants to State and interstate agencies were not sufficient to support necessary activity. S. 2947 doubles the authorization for such matching grants.

But, perhaps more important than all of these findings, the sub-. committee learned that the costs of achieving minimum waste treatment were far greater than earlier conceived.

The best estimates indicate it will cost at least $20 billion just to bring municipal sewage treatment up to minimal acceptable levels by 1972. But this first cost only eliminates today's backlog. Beyond that, we must meet the demands of a rapidly expanding population and an increasing urban population density. In addition, we must be prepared to meet economic change and a higher concentration of industry in urban areas. Such increased demands will lead to more extensive and expensive treatment systems to meet higher water quality standards.

We will have to face the cost of separation of storm and sewer waters-possibly a $30 billion job. We have to do more about industrial pollution, yet an undetermined cost. It may well be that we are facing a job which will cost $100 billion by the year 2000.

The committee bill is directed toward the job of catching up with the existing municipal pollution backlog problem. It therefore provides for additional authorization of $6 billion for Federal construction grants. This sum is based on the concept that pollution control must be a shared responsibility; that the Federal share should be approximately 30 percent, and that State and local government should provide the balance.

Looking beyond our immediate needs, the subcommittee decided that, while dealing with the present problem, a long, hard look at future problems, requirements and possibilities was essential.

Last year the subcommittee learned that by 1980 the demand for water will equal the supply. That statistic, of course, is a national average. In some areas, a surplus of water will continue to exist. In other areas a shortage of supply will occur before 1980. Critical shortages already exist in the Northeast and the Pacific Southwest.

S. 2947 provides for an intensive research program into advanced waste treatment and water purification. This program, if successful and adequately funded, should lead to refined methods of treatment designed to make water domestically reusable.

If I might dwell on this point for a moment, I think it important to note that there are only three known methods of providing additional water supply beyond improved storage of available fresh water Sources: (1) saline conversion; (2) transfer from one basin to another; and (3) reuse of existing resources.

Research is moving ahead on desalination but we have much to learn about its value, particularly in relationship to cities located inland from the sea. River basin transfer, already moving ahead in California, is

tremendously expensive and creates deep political and social problems. Present data and analyses indicate that in most cases a system of advanced waste treatment, purification and reuse of water offers the most economic and practicable approach to the problem.

It is the subcommittee's intent to provide the necessary funds for research into advanced treatment technology so that the cost of reuse of our water supplies can be reduced.

Increased population, expanded industrial production, and broadened water uses are combining to place intensive pressures on our water supplies and our waste treatment systems. The logic of events is driving us beyond traditional primary and secondary treatment to tertiary plants.

It may be well to pause here for definitions of these terms: primary or minimum treatment is defined as that amount of treatment necessary to remove floatable solids from waste water. Too large a proportion of our waste treatment plants are confined to this level of treatment at the present time.

Secondary or medium treatment involves the use of biological techniques to decompose organic wastes which remain after primary treatment. Increasingly our plants must build up to this level of treat

ment.

Tertiary or advanced treatment utilizes various techniques to reduce organic waste loads and to remove other undesirable materials prior to discharge or reuse. Increasingly we will have to turn to this tremendously expensive kind of treatment.

In connection with the authorization for research, the subcommittee bill also provides for grants for new or improved methods of compatible joint treatment for municipal and industrial wastes.

On this latter point, industrial wastes are still of deep concern to the subcommittee. No adequate estimates of the cost of treating these wastes are available.

In the past year, we have been encouraged by the increasingly cooperative attitude being shown by industrialists. In many areas of the Nation, industry is moving rapidly to accept its public responsibility. However, it will be necessary to explore further the problems and techniques of industrial waste treatment before we can insure an adequate program of pollution control.

In part, these hearings will expand on the question of industrial waste treatment. Representatives of industry are scheduled to appear to discuss techniques and advances in pollution control. We plan to examine the problem of exotic and dispersed wastes, including detergents, pesticides, and insecticides. Also, a special day has been set aside to discuss nuclear pollution. I fully anticipate that the next 11 days of hearings will provide excellent information on the need for an expanded Federal program.

Last year the Congress enacted the Water Quality Act. That legislation gave the Federal Government the means to set and to encourage adequate water quality standards and to prevent as well as to abate pollution. This was a major achievement. Now then, our task is to provide the necessary funds-and it is a money problemto construct effective treatment plants and to improve our techniques for coping with pollution.

I am convinced that the legislation the Congress will enact this year will bring to all levels of government the dollars and the tools which will help clean up our Nation's water resources and keep them clean.

I am delighted that, as usual and as has been typical, so many subcommittee members are here. This has been a cooperative effort. Without the help of the gentlemen who are seated beside me, we would not have moved ahead as effectively as we have in dealing with this problem.

May I call on Senator Boggs, my colleague from the Republican side of this nonpartisan committee.

Senator BOGGS. Thank you, Mr. Chairman.

Let me first say that I join with you in your remarks relative to the hearings that we commence today.

Since the formation of this subcommittee under your able leadership, giant steps have been taken to combat water pollution in the country. The enactment of the Water Quality Act of 1965 in the last session of Congress may well be recorded as one of the most farreaching and effective pieces of legislation to go on the books in this field. In addition, the many days of hearings that this committee has held through the years has greatly stimulated the interest of people throughout the country in water pollution activity and it has made everyone acutely aware of the seriousness of our water pollution problem.

In the field hearings conducted last year in seven major cities, it became abundantly clear to me that it would be necessary for the Federal Government to increase its financial help to States and municipalities if we are ever going to be in a position to control and prevent water pollution. It is for that reason, Mr. Chairman, that I joined with you and other Senators in cosponsoring S. 2947, one of the bills that will be considered during the hearings that we start today.

The administration has also shown increased interest in water pollution and has, in fact, submitted its proposal for water pollution. This is contained in S. 2987, a bill which you also introduced, Mr. Chairman. There are a number of other proposals which have been introduced by various Senators which will also get consideration during these hearings.

I am sure these hearings will provide us with the answers to many of the questions that will be raised as a result of the various approaches to this problem evidenced by the bills that are before us. As I indicated earlier, I am very happy to be a cosponsor with the chairman of S. 2947 and I know that when these hearings are completed and the subcommittee begins to mark up a bill to send to the floor, we have every hope it will be good legislation, in the best interests of the public, and one designed to speed an all-out attack on water pollution. Mr. Chairman, again I want to thank you and other members of the committee for the privilege of working on this serious problem and cooperating with you in every way possible.

Senator MUSKIE. Thank you very much, Senator Boggs.

May I now ask Senator Randolph, a strong supporter of this legislation, to speak.

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