functioning of States and interstate relationships. Here, for example, ideas are exchanged on data assembly and evaluation, on staffing and organization, and on the conduct of compliance procedures.

Supplementing State efforts

In addition to promoting coordination, the commissioners of Orsanco are constantly exploring and exploiting opportunities to supplement State efforts. Perhaps the most important-and certainly the most productive supplementation effort has been that devoted to creation of public awareness and support for pollution abatement. Facing up to the realities of generating action from millions of people and thousands of industries in the eight-State area. it was concluded at the beginning of the program that desired accomplishment would require something more than technical surveys, research programs, and legal compulsions.

Conditions prevailing on the Ohio River dramatically supported the view that people were apathetic to their responsibilities for keeping streams clean. In 1948 less than 1 percent of the 32 million people living in communities along the river provided treatment for their sewage discharges. The industrial record was equally depressing. This almost universal disregard for water-quality protection could not be attributed to lack of laws or of technical know-how. Of these there was an abundance. Basically it reflected a lack of citizen understanding, and with it the lack of leadership in bringing about a change in public attitudes regarding the value of clean streams.

Therefore, a major part of staff effort, coupled with the vigorous support of individual commissioners and State-agency personnel, was channeled into activities designed to motivate communities and industries to move more promptly in meeting their obligations for pollution abatement.

The theme has been: Persuasion if possible, but compulsion where necessary. Hardly a day goes by that the message of "clean streams" is not being aggressively communicated somehow and somewhere in the Ohio Valley. Enlisted in this effort and generously supporting it-have been hundreds of newspapers. radio and television stations, along with scores of service clubs, civic and professional organizations, and chambers of commerce.

It is difficult, of course, to precisely measure the effectiveness of such effort. Suffice it to say that today 97 percent of the population along the Ohio River is served with sewage-treatment facilities as contrasted with less than 1 percent in 1948. Obviously something had happened to bring about a change in nublic attitudes-and with it the willingness to invest substantial sums of money for clean streams.

In this relatively short period of time the States have emphatically reversed the trend of half a century of indifference to river abuse. For the entire compact district-which includes all the tributaries-the scoreboard shows that 90 percent of the population is now served with sewage-treatment facilities; it was only 38 percent in 1948. Significant progress has also been made in curbing industrial waste discharges, as evidenced by the fact that 85 percent of the in.dustries are now operating control facilities in compliance with Orsanco basic requirements. However, much more needs to be done to meet the goals envisioned by Orsanco with regard to industrial wastes.

Perhaps the best indication of how the States regard their regional campaign to promote public support for pollution control has been the authorization of further activities. This action recognized that an informed citizenry is the strongest ally in the fight for clean waters. Accordingly, Orsanco was charged with the conduct of an intensified "public affairs" program. This has included production of a series of documentary films dealing with problems yet unsolved as well as with progress that is being made. And the activities were de signed to take even greater advantage of the public-service time made argilable by radio and television stations. To this end transcribed "action oriented” messages dealing with various aspects of the antipollution efforts of the State agencies are presently supplied to 137 television and radio stations throughout the Orsanco area. These prerecorded messages and the film strips to accompany them generally a set of ten 1-minute "spots"-are changed every 13 weeks. In addition to supplying these transcriptions the Orsanco staff develops discussion programs and other special-feature presentations utilizing State agency and local personalities.

Still another form of supplemental service sponsored by the signatory States is a river-monitor and surveillance program, which is now in its 13th year of development. Through the operation of a network of monitor stations, Orsanco

headquarters has become the clearinghouse for reports on river-quality conditions. This program serves two functions. On the one hand it is the source of analytical data for the assessment of control measures. Of more immediate significance, the surveillance operations have permitted establishment of an "alert" system whereby the State agencies and the users of river water are kept informed of unusual conditions so that appropriate corrective actions can be taken promptly.

Looking toward improvement of the “alert” potentialities of its monitor system, the commission authorized its staff several years ago to engage in work that led to the development of a unique electronic sentinel, 11 units of which are now in operation. Perfection of this Orsanco robot monitor system could fulfill the promise of providing continuous night and day vigilance on river quality conditions. The importance of this innovation in pollution-control practice may be appreciated by noting that more than 2%1⁄2 million people obtain their water supplies from the Ohio and almost a hundred huge industries draw their supply from the river. In pioneering this new concept for safeguarding water supplies, the eight States have demonstrated the leadership that can emanate from group action.

Although budget limitations permit only a modest effort in research and special investigations, the commissioners have been most sympathetic in their endeavor to sponsor projects recommended by the States. It has been possible, for example, to initiate some work on the psysiological aspects of water quality; to make an appraisal of the aquatic-life resources of the Ohio River; and to maintain a continuing assay of radioactivity in river silt. fishes, and the plankton on which fish feed. In addition, the Orsanco staff has carried out investigations considered to be of mutual concern to the States. A recent major undertaking was an assessment of river-quality changes that occurred during a 16-week shutdown of steel mills caused by a labor strike. Other studies have dealt with methods for reduction of phenol pollution which was carried out in cooperation with the Orsanco Steel Industry Committee, and an evaluation of the membranefilter technique for analyzing bacterial pollution in river water, which was carried out with the Orsanco Water Users Committee.

What's ahead

Perhaps the most eloquent measure of progress in this crusade to convert apathy into action-to win support for the proposition that river cleanup is everybody's business-is the fact that communities in the Ohio Valley have invested almost a billion dollars for construction of pollution-abatement facilities. Investments by private enterprise for control of industrial wastes seldom are matters of public record, but it is estimated that this could be approaching onehalf billion dollars.

Securing construction of control facilities that would eliminate the major burdens of pollution was established as target No. 1 in the Orsanco program. This decision reflected the view that no time should be lost in doing what was obviously required to satisfy immediate pollution-control needs, and which would be prerequisite for any ultimate upgrading.

For example, in dealing with industrial waste control, one approach would have been to initiate a detailed study of the discharges of hundreds of industries, evaluate their influence on river quality and then promulgate a series of detailed regulations. Quite aside from the manpower necessary for such a job, the time required for its completion might be 5 years. Meanwhile obvious pollution would have continued unabated.

The course chosen by Orsanco was this: Regardless of what detailed studies might reveal concerning the need for corrective measures at individual industries, it could be asserted now that every industry would at least have to meet certain basic requirements. Therefore, until such tailored requirements were determined there was no reason for any industry to delay installation of facilities to eliminate the discharge of (1) settleable solids; (2) floating debris, scums, oil, or other unsightly substances; (3) materials producing color or odor; and (4) substances of a known toxic nature. (For a detailed explanation see the appended document titled "Industrial Waste Control Policy and Procedure.")

With 85 percent of the industries now having installed facilities that comply at least with these basic requirements, and with 90 percent of the population served by sewage-treatment facilities. the commissioners believe that target No. 1 has been zeroed in. And the aim now is being concentrated on other targets of achievement. All of them relate to additional means for maintaining and im

proving the quality of water resources. They are detailed in an attachment to this statement titled "Report of Long-Range Planning Committee of Orsanco." One target of attention is the establishment of a river-warden program in order to deal effectively with careless or incompetent operation of control facilities and to insure prompt challenging of clean-stream violations. Toward this end the existing airplane and boat surveillance operations are being intensified, and the States are endeavoring to increase the frequency of plant inspections. A major challenge in the Ohio Valley is the curbing of acid mine drainage. This aspect of pollution control has long been shrouded with defeatism, allegedly because of inadequate scientfic knowledge. However, successful experiences in two of the signatory States of the Ohio Valley compact-Pennsylvania and Indiana-led the commission to conclude that the situation was not quite as hopeless as had been pictured. As a result, and in collaboration with its Coal Industry Action Committee, Orsanco adopted a control measure in 1960. This sets forth certain practical procedures, the employment of which can be expected to at least ameliorate mine drainage pollution. Now the coal-industry committee and the States are working to implement these measures. In addition, the Orsanco Coal Industry Committee has taken the initiative in bringing about a joint venture with the U.S. Bureau of Mines in tackling the problem of curbing acid discharges from abandoned mines.

Cooperation with other agencies

At this point it is appropriate to point out that the interest of the U.S. Bureau of Mines in furthering the aspirations of the Ohio Valley program is but one example of the help from Federal agencies that has been made available and welcomed by Orsanco. Earlier, it was stated that the Federal Government has three members on the commission. They represent the U.S. Public Health Service, the Corps of Engineers, and the Department of the Interior. This relationship has aided Orsanco in drawing upon a rich array of specialists and

resources.

In particular, the commission is indebted to the Taft Sanitary Engineering Center of the Public Health Service, to the Ohio River Division of the Corps of Engineers, to the U.S. Fish and Wildlife Service, and notably to the U.S Geolog ical Survey; the latter agency is the principal source of quality data and streamflow information on which so many Orsanco decisions must be based. It should also be noted that the U.S. Weather Bureau is making a unique contribution to the Ohio Valley program in meeting Orsanco's request to provide a daily 3-day forecast of riverflow volume and velocity. And over the years the US. Coast Guard has been most cooperative in lending its aid, particularly with regard to curbing oil pollution in the navigable rivers of the valley.

Should anyone wonder why Orsanco has been able to undertake so many things with its modest budget, the answer would be that it has been able to enlist so much help from so many sources. Not only have Federal agencies given generously of their time and talents, but the same can be said of industrial and municipal entities in the Ohio Valley. For example, the steel and metal-finishing industry committees of Orsanco have helped to subsidize studies on potential toxicity of certain wastes, which were initiated by the commission at the Kettering Laboratory. And for more than 10 years a number of private and public water companies in the Ohio Valley have been organized to serve on a nocost basis as monitors of river conditions and water quality. This is but a sampling of the professional and technical services that have been contributed to the Orsanco program. The details are documented in the annual reports of the commission.

In summary

In conclusion, it is the hope that this statement will have conveyed something of the spirit and enthusiasm of the eight States in the Ohio Valley who have harnessed an interstate agency to provide coordination and supplemental aid in their voluntarily chosen task of regional water-quality protection.

The nature and scope of Orsanco activities reveal that an interstate agency can perform a host of useful services in giving form and substance to a pledge of cooperation. How well that pledge is redeemed reflects the sincerity, the ingenuity, and the moral fiber of its participants. Thus the commissioners of a compact agency are the custodians of a great responsibility. In brief, they are the "conscience" of the signatory States as well as the inspiration for what these States can accomplish together. The Orsanco compact has been distinguished by the sense of mission and the dedication of the men who serve it.

The commissioners of Orsanco take great pride in what the signatory States, their communities and their industries have accomplished thus far. And they were indeed gratified when the American Society of Civil Engineers last month bestowed on the Ohio River Basin clean-streams program its Outstanding Achievement Award for 1963.

But any satisfaction this brings is tempered by the knowledge that much remains to be done. There are still evidences of obvious pollution, particularly in the upper river and on some tributaries, acid mine drainage has not been checked, and the matter of tailored requirements for industrial wastes commands detailed attention. It is for these reasons that the commissioners stated in their last annual report: "Records are made to build on, not to stand on."

Mr. JOHNSON. In order to guide him to some extent in the information that you want, it occurs to me that the comparisons would be helpful.

Senator MUSKIE. Yes-what were conditions at some point in the past, at the point that ORSANCO began operations, for example, and what are conditions now, what problems have been solved, what effort is being made, and what remaining problems remain unsolved.

Mr. JOHNSON. Fine.

Senator MUSKIE. I think it might be interesting also to know what technological breakthroughs may have been developed in this period, and what remaining technological changes there are.

This may be a broader picture than we can fill in. But these are some of the questions that would be of interest to the committee, I am

sure.

Mr. JOHNSON. Very well.

Mr. CANNON. I would like to add that one of the great problems in this field is the same problem that you are confronted with in litterbugging-it is the behavior of many millions of people that create a lot of these problems.

So that one of industry's programs is employed education to carry out good practices that minimize water pollution.

And as part of this program, ORSANCO has made seven movies on various aspects of the problems confronting them in the Ohio River Basin, and these are very helpful in getting wide public distribution and education on these problems, in order to get the real communitywide support that you need to really get these problems under control. Mr. JOHNSON. On page 14 we speak of S. 649.

We believe that S. 649 departs from sound principles in four major areas appropriate national water pollution control policy; appropriate level of government for issuance of regulations; grants-in-aid; and the creation of another new agency.

It is noted first that a new subsection 1(c) would be added to the Federal Water Pollution Control Act as follows

(c) It is the purpose of this Act to establish a positive national war pollution control policy of keeping waters as clean as possible as opposed to the negative policy of attempting to use the full capacity of such waters for waste assimilations.

This language was discussed at the National Conference on Water Pollution held in December 1960, although as stated at that time by Mr. C. P. Gutermuth of the National Resources Council of America, "We realize we are never going to get agreement on this in a meeting of this kind."

The following dialog occurred:

Mr. CANNON (National Association of Manufacturers of the United States of America). I would like to call to the attention of the Chair that panel II also made a recommendation on the same subject. I made a comment on the recommendation of panel II for amendment to include the concept of economic feasibility which the chairman indicated had merit. Therefore, before any action is taken on Mr. Gutermuth's suggestion, I would like to offer the same amendment for consideration by those present here.

Dr. WOLMAN. Do you have a specific suggestion as to the modification or the substitution? This is a language problem and I don't want to get lost in it. Mr. CANNON. My suggestion would be "as clean as economically feasible.” Mr. GREGG (Izaak Walton League of America, Inc.). I think the point that is raised by Mr. Cannon is valid. A qualification is necessary. We don't need to confine ourselves to considerations of economic values, although that is important, and perhaps the purpose could be served by saying "In keeping waters as clean as possible in consideration of health, recreation, and esthetic values, and economic and technical considerations," or "Economic and technical possibilities." or something like that.

Dr. WOLMAN. Have you considered the suggested language made by various representatives?

Mr. GUTERMUTH. Yes. They feel, while it isn't explicitly spelled out in this statement, everyone realizes and appreciates that the economic factors must be considered. It is assumed.

Dr. WOLMAN. I shall increase my unpopularity by assuming that this means you adopt panel I's statement. Again I say that there shall appear in the record any disagreements or suggestions for expanded language, which would take care of those of you who feel that even though it may be implied, the language might be strengthened in the direction of economic use and application.

The National Technical Task Committee on Industrial Wastes accepted Dr. Wolman's invitation to include in the record expanded language so that the "language might be strengthened in the direction of economic use and application," and submitted the following statement:

"At the annual meeting of the National Technical Task Committee on Industrial Wastes on December 15, 1960, there was discussion of the problem which developed in the final plenary session of the National Conference on Water Pollution of combining the No. 1 recommendations of panels I and III.

"Time limitations and other factors at the plenary session were not conducive to the reaching of a properly considered decision.

"As a result, dissatisfaction was expressed by many that recommendation I as drafted by panel I was also adopted by panel III in place of their original draft.

"In the interest of reconciling the points of view expressed by panels I and III and at the same time attempting to preserve the sense of the participants at the conference, we would respectfully suggest acceptance of the following consolidated statement which preserves the meaning and intent of the original recommendation 1 of panel I and recommendation i of panel III:

"We recommend that the conference express its conviction that the goal of pollution abatement is :

"(a) To protect and enhance the capacity of the water resources to serve the widest possible range of human needs; and

"(b) That this goal can be approached only by accepting the policy of keeping water clean, consistent with the variabilities within and among different river basins. "

Senator MUSKIE. Is that a goal which you are in a position to endorse?

Mr. JOHNSON. Yes, I think it is.

Senator MUSKIE. These two points?

Mr. JOHNSON. Yes.

Senator MUSKIE. If you were sure that a statement of national policy incorporated those two goals, would it meet with your satisfaction! Mr. JOHNSON. I think that isn't the way we would write it, but as expressed in this rather long dialog here, it is as much as we could expect.