CONGRESSIONAL SUBCOMMITTEE RECOMMENDATIONS ON WATER RESOURCES Recommendation No. 1: That the Congress adopt a national water policy covering 9 major points.

The basic functional organizational setup, as proposed in recommendation No. 1, appears to the North Carolina Recreation Commission to be correctly conceived (see answer to question 2 for further explanation).

It may be desirable, however, to offer material which may bring about a better understanding of the reasons for the support of the North Carolina recreation agencies in any approach to the conservation of water resources. Thus it is that reference is made to the North Carolina Department of Conservation and Development's report, made in 1955 by the committee on water resources, inlets, and coastal waterways. Excerpts from that report are, therefore, hereby reproduced for convenient reference.

USE OF WATER FOR RECREATION

Responsibility for public recreation: The universal recognition of the responsibility of the various levels of Government for public recreation is growing rapidly. There is increasing recognition that recreation means something more than amusement, and that it involves constructive use of leisure time which is becoming increasingly available for most people. The growth and development of public recreation in the last decade, together with the vast sums that have been spent for development of facilities and operation of programs, indicate the importance of recreation in the lives of people.

Recreation in its broadest sense is a continuation or expansion of education for adults as well as children. This is as true of the extensive, unorganized forms of recreation that involve use of large parks and forest reservations as it is of intensively supervised recreation in city playgrounds and community centers. Park and playground systems are increasingly being planned for and provided at municipal, county, and State levels. In 1945 North Carolina became the first State in the Nation offiicially to recognize the importance of recreation by creating a State recreation commission.

Recreational use of lakes.-The recreational use of lakes in North Carolina has grown to the proportions of big business. Many lakes have cottages on their shores, and thousands of people enjoy fishing, boating, and bathing on their waters each year. The demand for lake sites for permanent homes, as well as summer cottages, may make profitable the construction of dams to create lakes. Lakes have been built in State and National park and forest areas. Fishing, boating, bathing are permitted on these waters. The construction of cottages on the shores of these lakes, however, has been limited or prohibited in order to preserve their undisturbed sylvan settings.

For receational use, it is desirable that a lake should have relatively pure, clear water, fairly constant levels during the recreation season, pleasing outline and setting, and good fishing possibilities.

In North Carolina, there are 198 natural and 170 artificial lakes, along with our inlets, rivers, sounds, and 320 miles of shoreline on the Atlantic coast, which provide water recreation facilities for millions of people each year.

There are 28 State and Federal parks, forests, and historical sites, including the Great Smoky Mountain National Park and the Blue Ridge Parkway, which are the most visited national parks in the United States. There are more than 70 lakes with recreational facilities in these parks and forests.

Recreational use of streams and other water areas.-The streams of North Carolina in past years lost much of their value for recreation with the increase in urban population and industrial activity which resulted in stream pollution. This result reduced the number of desirable species of fish in some places. Pollution also caused the streams to become unpleasant to sight and smell below sewer and industrial waste outfalls. The present program of pollution abatement, which the State stream sanitation committee is effecting, is beginning to bring streams back to greater importance in the receational field. Clean, clear water improves the quality and quantity of fishing and makes boating a pleasure.

Recreation is now of such importance that it is provided for, whenever practicable, in the planning of flood-control, water-supply, and hydroelectric reservoirs.

Water areas, including streams, rivers, natural and manmade pools, and ocean beaches, have a special recreational appeal. North Carolina is blessed with a bountiful supply of these recreational facilities. All water projects

should be appraised, realistically and economically, with regard to the probable influence on recreational use, fish, and wildlife.

Classes of recreational facilities.-Water recreational facilities can be classified in four groups, swimming, boating, fishing, and hunting. Our beaches on the Atlantic coast are the greatest attraction for swimming. Boating is very popular wherever there are large enough lakes or ponds. However, the ocean sounds, rivers, and inland waterways are our greatest playgrounds for this sport. The inland waterway from Virginia to South Carolina extends for 298.8 miles. There are two routes from Norfolk to Albemarle Sound, one via the Dismal Swamp, and the other via Great Bridge and Coinjock. North Carolina waters offer endless variety to sports fishermen. In the mountains, there are hundreds of miles of clear mountain steams and 75 lakes, where a dozen species of fighting fish may be found. In the Piedmont Plateau area, the rivers, lakes, and ponds provide the local angler with several species of fighting fish.

Coastal area recreational facilities.—The coastal area of North Carolina is divided into six divisions as follows: (1) Southeastern coast, (2) Cartaret coast, (3) central coast, (4) the outer banks, (5) northeastern coast, and (6) Currituck coast.

Coastal fishing grounds offer a wide variety of catches from the ocean. North Carolina claims two of the most famous migratory wildfowl hunting groundsin the world. One is Lake Mattamuskeet in Hyde County, and the other is the Currituck Sound country, known far and wide for both geese and ducks. Fish and wildlife constitute a resource of major importance, both commercially and from the standpoint of recreation.

Recreation value of water projects.-Water projects can adversely affect recreation, fish, and wildlife, and projects should be appraised as to this possibility. Where commercial hunting, trapping, and fishing are involved, an approximate monetary estimate is possible. In general, damages are no more susceptible to appraisal than the benefits previously discussed. Inability to evaluate damages, however, does not imply that they are unimportant and to be disregarded. Priority of water use, availability of equivalent facilities, economical consequences, commitments, and other considerations of present and long-range welfare should control the decision. No arbitrary chosen set of monetary values can replace the need for sound judgment.

It is realized that, in some cases, the recreational values of reservoirs have been recognized and given weight by Federal agencies in justifying the expenditure of Government funds for flood control, power development, and soil conservation. The importance of the contribution, which these resources are making to the economy and the broadened living opportunity of the citizens of North Carolina, should be borne in mind.

Wildlife resources commission.-The State, realizing the recreational and commercial importance of fish and wildlife resources, protects and improves these resources through the wildlife resources commission. The commission is developed around a nucleus of five fundamental, essential conservation activities: regulation, enforcement, education, management, and research. The commission employs effectively and economically some 285 paid personnel in rendering maximum service to tens of thousands of North Carolina sportsmen. An example of the magnitude and efficiency of the Commission's work is shown by revenue figures for fiscal year 1951-52, totaling receipts of $2 million and expenditures in the amount of about $2 million.

Parks and tourists.-Recreation in North Carolina includes many of the Nation's greatest resources in which are included the mountains, beaches, natural and manmade lakes, National and State parks, and rivers. To facilitate the use and enjoyment of these resources, the Division of State Parks operates a diversified system of parks. State parks property is valued in excess of $6 million and consists of 10 State parks and 7 State historical parks, located from the mountains to the Atlantic Ocean. The State parks personnel consists of 31 full-time and 50 summer-seasonal and additional part-time employees. Attendance at the parks from January 1 through September 30, 1954, was in excess of 2 million people. Those enjoying water recreation facilities were second in number of attendance. The tourist industry receipts amount to more than $400 million annually in North Carolina, with the greatest trend toward aquatic recreational facilities. It is evident that the State parks facilities for the enjoyment of recreation play an important part in this volume of business.

Recommendation No. 2.-That the creation of a Water Resources Board, by the Federal Government, is recommended.

The basic organization setup, as proposed in recommendation No. 1, appears to the North Carolina Recreation Commission to be correctly conceived if this body is to be an advisory, coordinative agency which is to work with all aspects of government having to do with water resources, their study, control, development, and use.

The functional aspects of the proposed board are, as described in the task force proposals, so general and require so much more of definition and interpretation than is given, that it is difficult to give our approval or disapproval. If, however, functions of overall study, advisory and coordinative service (to all Government and other services) are accepted by Congress as the basic premise then the Board's responsibilities can be later worked out as a cooperative project. To those of us who have observed the work of an interagency committee of Federal Government it becomes very apparent that the present proposed plan for the establishment of a board is fully indicated. An interagency committee can serve in the early stages of exploration, definition of special, departmental interests, of avoiding overlapping and duplication of services, and of discovering areas of need which cannot be served by such an organization. The board organization will allow us to go forward into a program of exploration, planning, and of actual development which could not be achieved by an interagency setup. It will allow the new organization to help to do things as well as to survey the present condition of them. It is much indicated that the Water Resources Board be established on the Federal level.

Recommendation No. 3-In order that Federal Water Board become an integral part of the Federal Government and, therefore, have accessible to it all information and resources of this Federal Government, it is important that its functions and potentials be reported through the agency which is best qualified to make recommendations as to its financial support. It is well, therefore, that the Bureau of the Budget be provided such of professional staff as will enable it to fully perform the function of evaluation and, thereafter, to make such recommendations as appear to be merited, in the same manner as is done for all other agencies of Government.

SUMMARY OF THE PURPOSES AND OBJECTIVES OF THE NORTH CAROLINA RECREATION COMMISSION AS THEY RELATE TO WATER RESOURCES AND POWER

Under the North Carolina Recreation Commission bill, S. 140, an act to create a State recreation commission, are indicated the bases for commission interests and responsibility. Under "Section 4, Duties of the Commission," some of these interests and responsibilities are specified. Within them it is indicated that the commission is to study and appraise recreational needs of North Carolina and to assemble and disseminate information relative to recreation. The commission is to cooperate in the promotion and organization of systems in all political subdivisions where recreation is affected. The commission is, also, to cooperate with State and Federal agencies and others in the promotion of recreational opportunities, in order to carry out the recreation commission's objectives and responsibilities.

Incorporated in these legally assigned duties is a basic responsibility to desirably effect the general welfare of all aspects of State government and of their services to the citizens of North Carolina. Thus it is that the important place of recreation in the present and, even more greatly, in the economic future of North Carolina, has become a factor of which the commission is fully aware. Although recreation has become big business throughout the Nation, it is of even greater relative importance in a State such as North Carolina, where the tourist, resort, and commercial recreation opportunities are so great. With the unprecedented growth in the sale of water recreation devices, from the outboard motor to the simplest of water wings, this in itself has become big business in North Carolina. When the effective use of such facilities is considered in gasoline tax, use of highways, purchase of many kinds of fishing and other sport recreation equipment, the personnel and the amounts paid for wages and services all add up to a total which probably exceeds any other of North Carolina's areas of finance and business. The use of water resources has become an important and highly contributive facet of North Carolina's business and has resulted in an amazing total of sales and services. These direct responsibilities as well as those of providing such outstanding recreation opportunities for the citizen and the tourist cause the place of the North Carolina Recreation Commission on the State Water Resources Board to be greater and of more direct application than the other members might, at first, be aware.

The program of the North Carolina Recreation Commission for helping to carry out the objectives and to accomplish the purpose of the State water resources board and, therefore, of any organization which is effected on the Federal level, is a tenuous thread throughout the whole of the commission's advisory services. These go to municipalities, industry, churches, commercial recreation establishments, private agencies, resort and tourist agencies, the institutional programs (such as those of the State College, University of North Carolina at Chapel Hill, and others in their securing of water resources for the training and recreation of their students and professional personnel) and are, hereby, accepted as a continuing interest and an active responsibility for further assistance throughout the aspects of community living in North Carolina and as they apply to the work of the North Carolina Water Resources Board.

LEGISLATION COMMISSION BILL

S. B. 140-AN ACT TO CREATE A STATE RECREATION COMMISSION Whereas the contribution of recreation to the health, education, economy, and general welfare of the people has become universally recognized and accepted; and

Whereas the lack of recreational opportunities for persons in the armed services, as well as civilians, became apparent shortly after the United States entered the war; and

Whereas under authority of Public Law 1943, chapter 706, conferring upon the Governor certain emergency powers, a recreation committee was established in June 1943 to meet this pressing need in North Carolina; and

Whereas experience gained by this emergency committee has shown the immediate need for a State recreation commission: Now, therefore, the General Assembly of North Carolina do enact

SECTION 1. Recreation Commission.-There is hereby created an agency to be known as the North Carolina Recreation Commission.

SEC. 2. Definitions.-(1) "Recreation," for the purposes of this Act, is defined to mean those activities which are diversionary in character and which aid in promoting entertainment, pleasure, relaxation, instruction, and other physical, mental, and cultural developments and experiences of a leisure-time nature. (2) "Commission" means the North Carolina Recreation Commission. (3) "Committee" means the Advisory Recreation Committee.

SEC. 3. Membership of Recreation Commission; term.-(1) The Recreation Commission shall consist of seven members, appointed by the Governor, and the Governor, Superintendent of Public Instruction, Commissioner of Public Welfare, and Director of the Department of Conservation and Development as members ex officio.

(2) In making appointments to the Commission, the Governor shall choose persons, insofar as possible, who understand the recreational interests of rural areas, municipalities, private membership groups, and commercial enterprises. The Commission shall elect, with the approval of the Governor, one member to act as Chairman. At least one member of the Commission shall be a woman, and at least one member shall be a Negro. A majority of the Commission shall constitute a quorum, but only when at least four of the appointed members are present.

(3) For the initial term of the appointed members of the Commission, one shall be appointed for a term of one year, one for a term of two years, one for a term of three years, one for a term of four years, one for a term of five years, and two for a term of six years; and, thereafter, the successor of each member shall be appointed for a term of four years and until his successor is appointed and qualified.

(4) Any appointed member of the Commission may be removed by the Governor.

(5) Vacancies in the Commission shal be filled by the Governor for the unexpired term.

(6) The Commission shall meet quarterly in January, April, July, and October, on a date to be fixed by the Chairman. The Commission may be convoked at such other times as the Governor or Chairman may deem necessary.

(7) Members of the Commission shall receive reasonable travel and maintenance expenses while attending meetings, but they shall not be reimbursed for travel and maintenance expenses for longer than four days for any one meeting.

SEC. 4. Duties of the Commission.-It shall be the duty of the Commission: (1) To study and appraise recreational needs of the State and to assemble and disseminate information relative to recreation.

(2) To cooperate in the promotion and organization of local recreational systems for counties, municipalities, townships, and other political subdivisions of the State, and to aid them in designing and laying out recreational areas and facilities, and to advise them in the planning and financing of recreational programs.

(3) To aid in recruiting, training, and placing workers, and promote recreation institutes and conferences.

(4) To establish and promote recreational standards.

(5) To cooperate with State and Federal agencies, the Recreation Advisory Committee, private membership groups, and with commercial recreational interests, in the promotion of recreational opportunities.

(6) To submit a biennial report of its activities to the Governor. SEC. 5. Powers of Commission.-The Commission is hereby authorized: (1) To make rules and regulations for the proper administration of its duties. (2) To accept any grant of funds made by the United States, or any agency thereof, for the purpose of carrying out any of its functions.

(3) To accept gifts, devises, and endowments. The funds, if given as an endowment, shall be invested in such securities as designated by the donor, or, if there is no designation, in those which the State sinking fund may be invested. All such gifts, bequests, devises and all proceeds from such invested endowments, shall be used for carrying out the purpose for which they are made. (4) To administer all funds available to the Commission.

(5) To act jointly, when advisable, with any other State agency, institution, department, board, or commission in order to carry out the Recreation Commission's objectives and responsibilities. No activity of the Commission, however, shall be allowed to interfere with the work of any other State agency.

(6) To employ, with the approval of the Governor, an executive director, and upon the recommendation of the executive director such other persons as may be needed to carry out the provisions of this Act. The executive director shall act as secretary to the Commission.

SEC. 6 Advisory Committee.—The Governor shall name a Recreation Advisory Committee consisting of thirty members who shall serve for a term of two years. The Governor shall name one member to act as Chairman of the Committee. Vacancies occurring on the Committee shall be filled by the Governor for the unexpired term.

Members of the Committee shall represent, insofar as feasible, all groups and phases of beneficial recreation in the State.

The Committee shall meet once each year with the Recreation Commission at a time and pace to be fived by the Governor. Members of the Committee shall serve without compensation.

The Committee shall act in an advisory capacity to the Recreation Commission, discuss recreational needs of the State, exchange ideas, and make to the Commission recommendations for the advancement of recreational opportunities. SEC. 7. If any provision of this Act, or the application thereof, is held invalid, such invalidity shall not affect other provisions or applications of this Act, and to this end the provisions of this Act are declared to be severable.

SEC. 8. This Act shall be in full force and effect from and after its ratification. In the General Assembly, read three times and ratified this the 19th day of March 1945.

Mr. JONES. Our next witness is Col. James C. Cooper of the Kerr Reservoir Development Commission.

We are glad to have you, Mr. Cooper.

STATEMENT OF JAMES C. COOPER, CHAIRMAN, KERR RESERVOIR DEVELOPMENT COMMISSION

Mr. COOPER. Thank you, Mr. Chairman and Mr. Lipscomb.

I am J. C. Cooper, chairman of the Kerr Reservoir Development Commission.

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