At Cincinnati, Louisville, and Evansville the water plants have thus far not experienced the degree of overloading comparable with those upstream. They have, however, been overloaded at times in the past few years. At Cincinnati, $3,000,000 has been provided and construction is now in progress on additions to the existing water filtration plant to assist in overcoming the increasing pollution in the river from above Cincinnati.

From past increases, and making allowance for a reduction in the future rate of urban population growth, it seems reasonable to assume, between 1930 and 1945, an increase of 20 to 25 percent in urban population located directly on the river above Cincinnati, and on the remainder of the drainage area an increase of from 30 to 35 percent. With existing conditions in the upper section of the river, it is entirely conceivable that the resulting increase in pollution from this population growth may bring about a critical situation in the Huntington-Portsmouth area where conditions have already passed the limit of safety.

The effects of further increased pollution may be expected to intensify the growing difficulties being experienced at Cincinnati, Louisville, and other smaller communities in the middle and lower sections of the river in obtaining consistently safe and palatable water supplies for domestic use.

If the present situation in the Ohio River were to be summarized, it might be said that pollution of the entire upper half of the river has brought about a progressive deterioration in the quality of water supplies as far downstream as Louisville, in spite of the application of every resource afforded by modern water purification. Although this deterioration has not thus far been serious below Portsmouth, the present margin of safety at cities like Cincinnati and Louisville is relatively narrow and appears to be growing smaller each year.

While the foregoing discussion has been limited to conditions on the Ohio River, because more intensive studies have been made of this river system than of any other, similar conditions are known to exist on many other watercourses in the United States.

A recent census of water pollution control accomplishments has indicated that of the 69,000,000 persons residing in urban communities, the sewage from about 28,000,000 receives some form of sewage treatment, leaving the sewage from a population of over 40,000,000 persons residing in urban communities to be discharged without treatment, usually into the nearest stream, lake or tidal water.

The present sewage load in many of these receiving bodies of water has reached, or shortly will reach, the point where the quality of the domestic water supply derived from these polluted sources will become of ever-increasing concern to public health officials who have to deal with and certify to the quality of public water supplies.

H. R. CROHURST.

FEDERAL RELATIONSHIP TO WATER POLLUTION CONTROL

In the consideration of this proposed legislation, providing for a cooperative Federal, State, local, and industrial stream pollution control policy and program, the essential purpose thereof is exemplified by the previous activities and experiences of the Public Health Service in work of this nature.

Since 1912, by virtue of the limited authority granted at that time by act of Congress authorizing investigations of the "diseases of man and conditions influencing the propagation and spread thereof including sanitation and sewage and the pollution either directly or indirectly of the navigable streams and lakes of the United States", the Public Health Service, insofar as research funds (without special appropriations for stream pollution) have conducted a number of investigations, among which may be enumerated the following which are available in report form:

Investigation of the pollution of tidal waters of Maryland and Virginia, 1916. Investigation of the pollution of certain tidal waters of New Jersey, New York, and Delaware, 1917.

Studies of the pollution and natural purification of the Ohio River, parts I, II, and III, 1924-25.

Studies of the pollution and natural purification of the Illinois River, parts I and II, 1927.

Report of an investigation of the pollution of Lake Michigan in the vicinity of South Chicago and the Calumet and Indiana Harbors, 1927.

Study of the pollution and natural purification of the upper Mississippi River, 1928.

Study of the pollution and natural purification of the Ohio River, a resurvey between Cincinnati and Louisville, 1931.

Disposal of sewage in the Potomac River, 1933.

Study of the pollution of the waters of Hampton Roads and vicinity * 1934.

It is pertinent to point out that up to the present time, once an investigation of the character above enumerated has been made, the Public Health Service, because of lack of authority and funds, has been obliged to "step out of the picture" so to speak, so far as further activities are concerned to bring about improvements or to remedy conditions as covered in these reports.

While the value of such reports from the standpoint of basic data is not to be deprecated, it is a fact that as a rule, in the past, no further steps have been taken as an aftermath or sequence by State or local authorities until conditions have become so intolerable that public opinion and sentiment have demanded that local or other funds be provided for the amelioration of the situation.

An example of this kind is illustrated in the instance of the Minneapolis-St. Paul sanitary district now engaged in the construction of sewage treatment works for the reduction of pollution in the Mississippi River at that point so as to eliminate veritable nuisance conditions. Another example of local demand for improved methods of sewage disposal occasioned more likely by esthetic conditions than by the pollution load is illustrated by the present construction of sewage treatment works for the District of Columbia.

To illustrate the other extreme, conditions at the southern end of Lake Michigan in the vicinity of Chicago are no better today, but are probably worse, than at the time of the Public Health Service investition conducted in 1924-25. In this connection, it is desired to quote the opening paragraph of an editorial entitled "Safeguarding Against Pollution", published in the April 30, 1936, issue of the Engineering News-Record:

Cities that take their water from Lake Michigan present surprising contrasts in the matter of water pollution and the safeguarding of public supplies. Thus, Milwaukee elected to build filtration works, after spending millions for sewage disposal; then, before the filters are even completed, it is caught by pollution carried to its intakes by abnormal storm-water overflows. In contrast, Indiana

cities to the south of Chicago built filters first, and continue to pollute the lake from which their supplies are taken-so far without harmful results. Following a course different from either of these, Chicago invests heavily in sewage treatment and builds no filters; yet its water is polluted so seriously by the sewage of the Indiana towns that "chlorine cocktails" are the usual thing in the city's south side, and at the same time chlorine absorption by organic matter is so high that the limit of effectiveness of the treatment is approached.

This published comment is indicative of the situation which now exists where there is no Federal agency cooperating with State agencies for a concerted unified activity along comprehensive lines for a stimulation of the work of the States with technical and financial aid so that these problems may be dealt with in a more logical manner.

It is to be noted that this proposed legislation contains no "big stick" so to speak. With existing constitutional limitations and with ample mandatory powers already vested in most State agencies (or which can be obtained in other States by proper educational and legislative procedures if necessary), the function of the Federal Government is, wisely, largely confined under this proposed act to investigations, research, technical advice to the States and political subdivisions thereof, and in strengthening the present State administrations in the places in which they are weak-namely, concerted effort and funds. An additional phase of the problem to which it is desired to invite the consideration of this committee is the large areas of territory in the United States, including the Ohio River Valley, where municipalities must have recourse to the surface streams for public water supplies because of lack of availability of other water supply sources. Evidence is fast accumulating that the pollution of many of these streams is rapidly reaching proportions to exceed the limits of existing and economically feasible facilities and works for the treatment and filtration of drinking water. Data are available indicating that there may be toxic properties in drinking water derived from heavily polluted sources that come either from chemical end products of unknown composition in heavily polluted waters or industrial wastes that are not removed or neutralized by known water supply treatment methods.

The great wave of intestinal disorders that spread progressively down in the Ohio River in the fall of 1930 after the drought of that year, attacking the various cities in sequence, and the recent outbreak of 100,000 or more cases of intestinal disturbances in Milwaukee may be foreboders of more serious disease outbreaks which may develop in the future unless pollution loads are limited.

In conclusion, it can be stated that ample methods of treating sewage and industrial wastes so as to reduce pollution loads within limits to take advantage of the self-purification abilities of streams, are available. There is flexibility in the degree of treatment necessary, depending on the factors involved in each instance. Municipal sewage is the greatest offender at the present time. To remedy this condition requires time, education, and money. This act provides funds for this purpose. If, in the judgment of this committee, the enactment of this proposed legislation will accomplish the correction of this condition, it is believed that the economic returns from the expenditures over a period of 10 years will be amply justified.

The CHAIRMAN. Proceed.

Mr. HOSKINS. One other point I wish to emphasize is the cooperation existing between the Federal Government and the States in the

operation of interstream cleaning measures. It has been demonstrated, I think, that more progress can be made in the solution of these problems where the Federal Government cooperates with the States in furthering stream-cleaning programs. That has been illustrated in a number of cases. At the last session of Congress the formation of the Ohio Valley Treaty was authorized. This followed the disclosure of the sanitary condition on the Ohio River as shown by the study made by the Public Health Service. Correctional measures have been instituted and are being instituted on the Upper Mississippi River between Minneapolis and St. Paul as the result of studies in the areas by the Public Health Service. Again as a result of studies in the Norfolk, Va., area by the Public Health Service steps are being taken to correct the conditions. These varied activities are discussed

in this memorandum.

(The memorandum referred to is as follows:)

FEDERAL AND STATE PARTICIPATION IN WATER POLLUTION CONTROL

A recent census of water-pollution-control accomplishments, from data obtained from those State agencies having authority over such matters, has indicated that of the 69 million persons in the United States residing in urban communities, approximately 68 million have access to sewerage systems. Sewage from about 28.4 million persons, about 40 percent of the urban population, receives treatment, that from 15.0 million persons receiving primary treatment only, representing about 33 percent purification, that from about 13.4 million persons receiving both primary and secondary treatment, representing from 60 to 95 percent purification. The remaining 39.5 million persons residing in urban communities discharge untreated sewage into the nearest stream, lake, or tidal water.

In many communities, in addition to the untreated or partially treated sewage, these bodies of water receive the discharge from industrial establishments either mixed with the domestic sewage or discharged separately.

Many communities on tidal waters, large lakes, and the lower sections of major streams have, up to the present time, been able to utilize natural processes of purification for the disposal of their sewage. With increased use of inland waters for domestic and industrial water supply, recreational use, agricultural use, and fish propagation, the time seems to be fast approaching when natural purification processes, while preventing nuisance conditions, may not provide suitable purification under all conditions for these other increasing uses. In the case of purified water supplies from many inland streams which of necessity have to be used in addition for the disposal of sewage, the pollutional load has been increasing to the extent that the water-treatment plants utilizing all known methods of purification cannot at all times produce a water of the quality deemed necessary for domestic use. In some instances it is possible that the fermentation of sewage deposits in canalized and other slow-moving waters such as in the Ohio River may have produced toxic substances not removed by present methods of water treatment, which have been responsible for intestinal disturbances suspected of being water-borne. While tidal waters are not used as sources of water supply, their increased use for other purposes and for the propagation of shellfish makes necessary in many instances

some method of purification other than that obtained through these natural processes.

Federal activity in water-pollution control, as it affects the public health, has been limited to the studies of the Public Health Service acting purely as a research agency, a disseminator of basic information considered of value to the various agencies dealing with this problem, and through limited cooperation with State health agencies, at their request, to study stream-pollution problems usually on interstate streams. Only limited personnel and no specific appropriations have been available for such studies and cooperation.

Almost without exception, authority for the control of water pollution within the several States as it affects public health is a function. of the State health agency. With few exceptions, none of these State health agencies have in the past had either sufficient funds or the necessary personnel to cope adequately with the water-pollution problem within the States. On interstate streams the solution of water-pollution problems is further complicated by the division of authority among two or more State health agencies. In those few States where more nearly adequate funds and personnel have been available for studies of and recommendations relative to water-pollution control, the solution of these problems seems to have advanced but little beyond that in the States with inadequate funds and personnel.

Some of the factors militating against the success of water-pollution control appear to be lack of coordinated effort and proper organization to obtain cooperation between State health agencies and local authorities and between industry and municipalities; lack of uniformity in the prevention of water pollution; in some instances lack of practicable and economical methods of industrial waste treatment; inadequate administrative control; nonuniformity of State laws and the complications arising from divided authority on interstate streams with the lower communities waiting for action by those above; the cost of remedial measures and a state of general apathy on the part of the public in respect to the economic aspects of pollution control.

The solution of the water-pollution problem is divided into two main divisions: (1) The determination of conditions existing in a particular body of water, usually obtained from data collected during sanitary surveys, from which to determine the remedial measures necessary to abate or control pollution and their probable cost; and (2) the stimulation of public interest to the point of raising the necessary funds to cover the cost of designing and installing the remedial works required.

Studies of stream pollution problems by the Public Health Service in cooperation with a few of the State health agencies and by the State health organizations themselves have demonstrated the practicability of determining existing pollutional conditions and the extent and probable cost of the remedial works required for pollution abatement or control.

The second part of the main division of the water-pollution problem, that of stimulating public and other interests to the point of providing funds for construction work, has had to be in the past a function of agencies other than the State health agency, because of limitation in funds and personnel.

This lack of continuity in the solution of stream-pollution problems, together with the other factors militating against the control of pollu