(The statement referred to follows:)

STATEMENT BY GORDON E. MCCALLUM, CHIEF, DIVISION OF WATER SUPPLY AND POLLUTION CONTROL, PUBLIC HEALTH SERVICE

Mr. Chairman and members of the committee, additional amounts are requested here for three 1962 appropriations-$30 million for grants for waste treatment works construction, $5,600,000 for water supply and water pollution control, and $1,600,000 for buildings and facilities, Public Health Service. These sums are requested to begin implementation of the Federal Water Pollution Control Act Amendments of 1961.

With your permission I will speak to all of these items in a single statement, because all three requests result directly from the same act of Congress.

EFFECTS OF THE AMENDMENTS

The Federal Water Pollution Control Act Amendments of 1961 (Public Law 87-88) have given new scope to the Federal Government's responsibilities and new dimensions and urgency to the joint Federal-State programs in water pollution control. The amendments follow closely the pattern described by the President, in his February 23 message on natural resources. As the President urged, the amendments: extend and increase Federal financial assistance for State and interstate water pollution control agencies; increase the amount of Federal assistance for construction of municipal waste treatment facilities; strengthen enforcement procedures; and intensify and broaden research in water pollution. The Secretary of Health, Education, and Welfare is given responsibility for specific contributions to the water pollution control aspects of reservoir planning in the comprehensive river basin plans for whose development the President accepted the goal of 1970, proposed by the Senate Select Committee on National Water Resources. Field laboratories are authorized to bring research and scientific support close to the sites of the increasingly complex water pollution problems. All of these additions to the Federal Water Pollution Control Act have the effect of adding to existing Federal, State, and local activity. The new activity will intensify needs for trained scientific personnel at all levels in the Federal, State, and local water pollution control effort. For this reason, this estimate includes funds to implement training grant provisions of the amended act.

GRANTS FOR TRAINING AND FOR WATER POLLUTION CONTROL PROGRAMS

In the water supply and water pollution control appropriation, $3,400,000 is requested for training grants, and grants to State and interstate water pollution control programs.

TRAINING

The magnitude of the nationwide Federal-State effort to control water pollution is significantly greater under Public Law 87-88 than it was under the basic 1956 act. The new amendments have especially accelerated and expanded research and other technical activities.

The Senate Select Committee on National Water Resources noted the existing shortages of manpower specially trained for the whole field of water technology, and reported that training programs might become necessary. For the field of water pollution control, this point already has been reached, in the view of the Water Pollution Control Advisory Board. At its June 21-22 meeting, the Board recommended that steps be taken to request a 1962 supplemental appropriation for training grants and research fellowships sufficient to begin implementation of a program that will lead to development of the manpower required to carry out the purposes of the new legislation.

For fiscal year 1962, it is planned to begin the research fellowship program with $100,000 for 20 fellowships at costs comparable to National Institutes of Health experience in the medical sciences.

For training grants, this estimate requests $1,300,000. This sum will provide an estimated 52 grants to assist universities and colleges in building up programs of graduate training in the sciences and engineering, and attracting graduate students. Particularly needed are physicists, chemists, and biologists, trained for the multidiscipline research that is developing in water pollution control. It is planned to review grant applications and obligate funds in fiscal year 1962 for projects that will be carried out in the 1962-63 school year.

STATE AND INTERSTATE PROGRAMS

Authority for grants to State and interstate water pollution control agencies, set in the 1956 act at $3 million expired with the 1961 fiscal year. Public Law 87-88 has extended this authorization to 1968 and increased the appropriation authorization to $5 million annually. Up to 1961, under the 1956 act, appropriations were made regularly, and every State responded to the grants. Through 1960, the States' own appropriations for water pollution control programs have increased by 60 percent. The sum of $3 million was requested for these grants in the regular appropriation request, because a proposal to extend the grant authority was before the Public Works Committees of the Congress at the time the budget was drafted. The present estimate requests $2 million to bring the total up to the full amount authorized by Public Law 87-88.

DIRECT OPERATIONS

For the appropriation, "Water supply and water pollution control," an additional $2,200,000 is required to begin work on direct operations of this Department that are called for by the new water pollution control legislation. The activities affected are: (1) review and recommendations on plans for reservoirs to be developed by Federal agencies; (2) enforcement of pollution abatement; (3) research on problems singled out by the statute; and (4) grants services.

AUGMENTATION OF STREAMFLOW

The 1961 legislation places upon the Secretary a new and specific responsibility for making recommendations concerning the pollution control needs for water storage to the Federal agencies that are planning reservoir development under legislative authorization.

The best forms of waste treatment now in use leave residuals of waste matter in the effluents they discharge to receiving streams. All streams also receive pollutional matter in the normal runoff they receive from urban, agricultural, and industrial lands.

During periods of low streamflow, the concentration of these wastes often reaches harmful levels. This form of pollution can be controlled to a significant degree, if water can be stored during periods of high rainfall and released into the streams during the periods of low flow, to increase the dilution and improve the natural assimilation of the wastes.

The 1961 amendments require the Secretary to make recommendations on water storage needs for this purpose in connection with each dam planned for construction with Federal funds. Such recommendations must be based on determinations of existing and planned uses of water in the basins for which the dams are planned. Other factors include the effects of such uses on the quality of the water returned to the streams as well as determinations of the quantities of water available for withdrawal, storage, and normal streamflow. The work required to develop these determinations will be done by technical personnel stationed in the Department's regional offices and field centers. This work will be fully coordinated with the work of other Federal and State agencies that contribute to the development of comprehensive basin-wide programs of water resource development and water use. Control of present and potential pollution is one of the most important factors in development of water resources for maximum utilization. Fifteen positions and $200,000 are needed for this work in fiscal year 1962.

ENFORCEMENT OF WATER POLLUTION ABATEMENT

The amended Federal Water Pollution Control Act greatly extends Federal responsibility for enforcement of pollution abatement. The new enforcement provision that has the most significant impact on operations was described by the House Committee on Public Works (H. Rept. 306, Apr. 25, 1961) as follows: *** the bill makes Federal enforcement procedures available not only in cases where the pollution discharge crosses State lines, but also whenever there is pollution affecting legitimate uses of the water of any navigable stream whether or not there is interstate pollution * * *.

Under the amended act, formal enforcement proceedings may be initiated against interstate pollution by the Secretary of Health, Education, and Welfare upon his own determination of the existence of harmful pollution or upon the

request of a State or a municipality. Formal Federal proceedings are available for intrastate cases only when requested by the Governor of a State. To comply with the intent of these new provisions, and make Federal services available equitably throughout the Nation, this estimate includes 80 new positions and $1,200,000, for fiscal year 1962. These resources will be deployed among regional offices and field stations in proportion to the distribution of waters in which pollution subject to abatement may exist. Current estimates place the number of such reaches of streams and other bodies of water at 26,000, more than 4 times the number which were potentially subject to interstate pollution under the previous act, Public Law 660 of 1956.

It is the policy of this Department to utilize its enforcement resources to stimulate voluntary or State enforced rollback of water pollution. To this end, the Federal program emphasizes reconnaissance surveys of areas subject to complaint. These surveys consist of analyses of the complaints, and of data already available in Federal and State files, supplemented by field inspections where necessary. All of these actions are conducted in close cooperation with State and local agencies whose jurisdictions may be affected, and are fully reported to local industries and others with potential pollution problems.

The number of formal Federal proceedings that occur is relatively small, but well publicized. It is expected that there will be requests for some 25 formal enforcement proceedings during the coming year. Under the 1956 act there were not expected more than eight such requests. The obtaining of necessary technical data to resolve this situation will place a heavy workload on the regional offices and the Sanitary Engineering Center at Cincinnati.

The 1961 amendments direct the Secretary to develop and demonstrate under varying conditions:

(1) Methods and procedures for evaluating the effects on water quality and water uses of augmented streamflows to control water pollution not susceptible to other means of abatement;

(2) Improved methods and procedures to identify and measure the effects of pollutants on water uses, including those pollutants created by new technological development; and

(3) Practicable means of treating municipal sewage and other waterborne wastes to remove the maximum possible amounts of physical, chemical, and biological pollutants in order to restore and maintain the maximum amount of the Nation's water at a quality suitable for repeated reuse.

The act authorizes annual appropriations of $5 million up to a total sum of $25 million for these three specific research purposes.

This legislative directive is aimed squarely at problems recognized by the Senate Select Committee on National Water Resources, when it reported the following recommendation:

***The area which the committee's studies show to be the most urgently in need of attention is in treatment of sewage and industrial wastes. Under present methods water for dilution of effluent from waste treatment plants may be one of the largest demands upon our water resources, and known techniques for dealing with the problems are lagging behind our needs."

Present waste treatment methods remove only 40 to 60 percent of the pollutants and many of the new contaminants-some highly toxic-are not affected at all. New technologies are producing new pollutants for which there are no methods of identification or of measuring their pollutional effects. Maintenance of water quality through use of dilution water stored for this purpose is becoming more necessary, and methods and procedures for evaluation of dilution water requirements are needed to make the best use of available streamflows.

All three of these problems must be solved, to keep the waters of the Nation safe for the repeated reuse that is the only way in which the fixed supply of water can satisfy the constantly growing demand.

An additional amount of $500,000 is requested in this estimate, to begin work on these problems.

SERVICE TO WASTE TREATMENT CONSTRUCTION GRANTS

To service the new grants for waste treatment works construction, and to apply the provisions of the Davis-Bacon Act, as required by the new legislation, to existing as well as new projects, $200,000 and 20 positions are requested. These grants are serviced from the regional offices of the Department, with guidance from a small staff in Washington.

BUILDINGS AND FACILITIES, PUBLIC HEALTH SERVICE

The 1961 amendments provide for establishment of field laboratories for research, demonstrations, field studies and training relating to the control and prevention of water pollution. Insofar as practicable, these facilities are to be located near institutions of higher learning. Without limiting the number of such laboratories, the law specifies that one shall be located in each of seven areas of the United States designated as: Northeastern, Middle Atlantic, Southeastern, Midwestern, Southwestern, Pacific Northwest, and the State of Alaska. Research, the development of comprehensive programs for water pollution control, enforcement of pollution abatement, collection of basic data on water quality, and technical assistance to State and Federal agencies on field problems all require specialized laboratory facilities at convenient locations. In addition, each section of the Nation has its own characteristic water quality problems and research requirements, and there is no large area that does not suffer losses from water pollution.

These field laboratories therefore have very important roles in the national water pollution effort. They will pinpoint research on major sectional problems; they will provide prompt high-quality laboratory services for control operations; their activities will be a continuing stimulus to improve State, local, and industrial water pollution control, and in cooperation with the nearby colleges and universities they will generate improved training and public knowledge of water pollution control in the areas they serve.

This estimate includes $1,600,000 to permit the acquisition of sites, planning, and design for seven field laboratories to be established in the areas designated by Public Law 87-88.

GRANTS FOR WASTE TREATMENT WORKS CONSTRUCTION

The new legislation authorizes appropriation of $80 million for grants for waste treatment works construction for fiscal year 1962. The authorization increases to $90 million for fiscal year 1963 and to $100 million for fiscal years 1964 through 1967. Grants are made for projects certified by State water pollution control agencies to have priority over all other eligible projects in relation to water pollution control and financial needs. Grants are made to the municipalities sponsoring such projects, by the Department of Health, Education, and Welfare, and may be made to each local government participating in sponsorship of a multiple community project. The maximum grant to a single municipality is 30 percent of the cost of the project or $600,000, whichever is smaller, except that the aggregate of grants to municipalities participating in a multiple sponsor waste treatment works may not exceed $2,400,000. The new act encourages communities to join in constructing a central sewage treatment plant which often is the most economical plan.

From fiscal year 1957 when the basic grant legislation became effective, until the end of fiscal year 1961, the national rate of contract awards for sewage treatment works construction rose 62 percent from an average annual total of a little over $200 million for the period 1952-56 to an average annual total of $360 million for the years in which grants have been available.

Up to July 1, 1961, an aggregate of 2,746 applications had been approved for grants of $225 million, to aid in sewage treatment works construction costing $1.3 billion. Local investment in these projects has been in the ratio of $5 to each dollar of Federal funds. Only $7 million remains unobligated of $232 million in Federal funds appropriated during this period.

New requests for 1,458 grants amounting to $127 million are known to be in preparation or under review. The States have reported that more than 5,100 communities need new sewage treatment plants, enlargement of existing plants, or addition of secondary treatment processes to existing plants. The total cost of the construction that is needed to meet these needs is estimated by State officials to be $2 billion.

The additional $30 million requested here to bring the 1962 appropriation to the $80 million authorized will finance about 230 grants to bring the total number covered by 1962 appropriations from 570 to 800.

Mr. Chairman, I will be glad to provide information on any aspects of these activities the committee wishes to discuss.

Mr. MCCALLUM. This involves three appropriations: $5.6 million for water pollution control; $1.6 million for buildings and facilities, Public Health Service.

Mr. THOMAS. Sites and planning?

Mr. MCCALLUM. That is right, sir. And $30 million for grants for treatment works construction. This is to carry out the statutory obligations resulting from the

Mr. THOMAS. The record of performance in that pollution control is just simply astounding to me. Considering the applications you have had and the amount of money you have spent too in the last 5 years. It seems like the people of the country are awake to their own problems and they certainly want to do something about it. We will get into the details of that program but I imagine there are many activities and that this rings a bell about as loud as any one of them does, does it not, Doctor?

Dr. TERRY. Yes.

WATER POLLUTION CONTROL

Mr. MCCALLUM. These are all based on the new act signed July 20. This act gives a new scope to the Federal program and some new dimensions in the State-Federal water pollution control program, which is the way we like to refer to it. The amendments follow closely the President's message on water natural resources and they extend an increase of national assistance to the States and interstate agencies. They increase Federal assistance for construction of municipal water treatment works. They extend and strengthen enforcement, intensify and broaden research, and require the Secretary to make recommendations on reservoir storage for water for balanced control of pollution in streams and Federal impoundments. They authorize field laboratories to bring scientific resources closer to the site of water pollution problems. These amendments will increase State and local as well as Federal activities, and certainly will intensify the need for scientific personnel in this field.

Mr. THOMAS. I believe your justification is silent as to the location of those. How many are there?

Mr. MCCALLUM. There are seven authorized.

Mr. THOMAS. Where are they?

We will get into the details. You go ahead. I beg your pardon.

GRANTS FOR TRAINING

Mr. MCCALLUM. With respect to grants for training: In fiscal year 1962, it is proposed to begin a research scholarship program with $100,000 for 20 fellowships in postgraduate specialization. Witnesses appearing before congressional committees have repeatedly urged that such a program be instituted in this field.

This estimate also requests $1.3 million for training grants to teaching institutions. Some 50 grants will be provided to assist universities and colleges in developing their programs in this field. This would help to increase the supply of engineers, physicists, chemists, and biologists and other scientists that are very much needed.

With respect to grants for