(1) That a decision on the construction of Seneca dam and reservoir on the Potomac main stem be indefinitely deferred, but that the site be preserved as much as possible against further encroachment, in case it is ever needed;(2) That three relatively small reservoirs be built on tributary creeks in the Paw Paw Bends area of the upper Basin, in addition to the authorized Bloomington reservoir on the North Branch, to begin providing a safe margin of water for metropolitan Washington and to serve Basin recreational needs;(3) That a permanent "green sheath" of protection for the Potomac main stem, together with major recreational opportunity, be assured by means of a new kind of composite park of varying width along both shores from Washington,D.C., to Cumberland, Maryland;(4) That the Cacapon River and the West Virginia portion of the Shenandoah be given Wild River status by Congress to protect their shores against excessive and inappropriate encroachment;(5) That water quality programs and research be accelerated toward certain minimum goals;(6) That Soil Conservation Service and related Forest Service programs for erosion control, water management and development, and recreation benefits be accelerated;(7) That the authorized boundaries of the George Washington National Forest be extended to provide public access to and protection of the two forks of the Shenandoah above their confluence;(8) That Mason Neck on the upper estuary be preserved; and(9) That the George Washington Memorial Parkway be extended from Mount Vernon to Yorktown as the beginning of a system of scenic roads and parkways in and around the Basin.
(1) That a decision on the construction of Seneca dam and reservoir on the Potomac main stem be indefinitely deferred, but that the site be preserved as much as possible against further encroachment, in case it is ever needed;
(2) That three relatively small reservoirs be built on tributary creeks in the Paw Paw Bends area of the upper Basin, in addition to the authorized Bloomington reservoir on the North Branch, to begin providing a safe margin of water for metropolitan Washington and to serve Basin recreational needs;
(3) That a permanent "green sheath" of protection for the Potomac main stem, together with major recreational opportunity, be assured by means of a new kind of composite park of varying width along both shores from Washington,D.C., to Cumberland, Maryland;
(4) That the Cacapon River and the West Virginia portion of the Shenandoah be given Wild River status by Congress to protect their shores against excessive and inappropriate encroachment;
(5) That water quality programs and research be accelerated toward certain minimum goals;
(6) That Soil Conservation Service and related Forest Service programs for erosion control, water management and development, and recreation benefits be accelerated;
(7) That the authorized boundaries of the George Washington National Forest be extended to provide public access to and protection of the two forks of the Shenandoah above their confluence;
(8) That Mason Neck on the upper estuary be preserved; and
(9) That the George Washington Memorial Parkway be extended from Mount Vernon to Yorktown as the beginning of a system of scenic roads and parkways in and around the Basin.
One of the recommendations has had to be deferred, though the need implicit in it remains acute—that the Cacapon and the West Virginia Shenandoah be included in the Wild Rivers Bill then pending before Congress. It had been thought that this Bill might be used to protect the Basin's threatened main tributary rivers, beginning with these two in West Virginia, but afterward doubt arose that the standards set up for Wild Rivers—the primary point of reference being Westernstreams flowing through sparsely peopled, often publicly owned country—would make sense or be feasible in a settled region.
Mason Neck has been preserved by great effort on the part of individuals, organizations, and different levels of government. More remains to be done in the way of consolidation of what is there and its adaptation to intended purposes, but the hardest part of the job is accomplished; a critically endangered asset has been protected. Funds have been voted by Congress for the acquisition of the Bloomington reservoir site in accordance with the Interim recommendation. Water quality improvement in the Basin is on the point of being significantly accelerated toward high goals, as the new State standards are reviewed and approved and start getting enforcement, though for specific trouble spots and categories of pollution special Federal or other action is going to be needed and is the subject of new recommendations accompanying this final report.
The rest of theInterim Reportmeasures require Congressional action, which none has yet received. In some cases this is because technically detailed authorizing legislation has taken time to prepare, in others because budgetary or policy realities have brought delay or reconsideration, and in still others because of a feeling at higher levels that certain recommendations could be better evaluated in terms of a final report's whole set of proposals. In the present set of recommendations they are repeated, for they represent genuine needs. Some have been slightly altered in the light of evolving restrictive reality, more recent knowledge, or flexibility, and the suggested or implied Interim scheduling for some has been changed. It is no longer envisioned, for instance, that the parkway extension below Mount Vernon will be authorized and constructed quickly.
The present recommendations, though much wider in overall scope than our earlier ones, represent only a first step in planning for the Basin, for reasons presented in full in this report. They are attuned to present economic and technological possibilities, as they must be. We believe that if they get full and calm appraisal they will prove to be acceptable politically, for all of them that call for major projects represent solutions for acute and imminent problems for which other satisfactory solutions do not presently exist, and to the greatest possible degree they have been made flexible to accommodate possible future change in aims or techniques.
In most cases, the reasons for specific recommendations have already been given in the body of this report. However, the primary public interest that focuses on the matter of major storage reservoirs may make it worthwhile at this point to review and enlarge upon the facts. Some reservoirs are going to have to be built if the Basin is to cope satisfactorily with water supply, water quality, and recreational demands. At the time of theInterim Report, we recognized that the three reservoirs in the Paw Paw Bends area, together with Bloomington, were very possibly not going to be enough to meet the need, but we made a recommendation for their authorization because it was clear that theywould take the edge off the immediately looming water problem at Washington, would mesh well with any additional future storage in the Basin, and would have no major disruptive scenic effects but instead would provide a great deal of high-quality flat-water recreation in an area where there was significant demand for it.
These considerations still apply. However, the more complete picture of Basin water problems that has emerged in our studies since theInterim Reportshows that at least two more reservoirs are very possibly going to be needed, and that the most useful scheduling of initial projects will combine an answer for upstream problems with the satisfaction of near-future needs at metropolitan Washington.
Besides the stretch of concentrated industry and population along the North Branch, where Bloomington Reservoir is going to be needed as soon as possible, three upper-Basin areas with major storage sites available near at hand are faced with large water shortages in the near or middle future, and have streams that would benefit greatly from flow augmentation. In the order of the critical importance of their problems, they are Frederick, Maryland, on the Monocacy; Chambersburg, Pennsylvania, on the Conococheague Creek; and the Staunton-Waynesboro area on the upper tributaries of the Shenandoah's South Fork, in Virginia.
Chambersburg lies in an area where opposition to any major reservoirs has been heavy. An interim solution to the local problem, though possibly not satisfactory in the longrun, can be found in a system of small headwater reservoirs. The major Chambersburg reservoir site has received full consideration as an element in a water-storage package to begin dealing with Basin demands. But its immediate advantages are not so unique as to justify going against the area's apparent wishes, and it has not been included as a recommendation.
The reservoirs at Verona near Staunton and at Sixes Bridge on the Monocacy, fortunately, can be adequately coordinated with Bloomington and the three Paw Paw impoundments to provide roughly a twenty-year margin of safety in water supply at Washington, besides coping with foreseeable shortages in their immediate neighborhoods, furnishing desired flat-water recreation, and contributing greatly to water quality and recreation benefits downstream. They are also locally and State supported. For these reasons, they have been chosen to fill out the recommended system of major reservoirs to meet near-future Basin demands.
The construction schedule recommended is based on the rate at which upstream and metropolitan demands are expected to develop in relation to each other. And, in accordance with flexible principles of planning, there is provision that if more desirable alternative sources of water or any changes in expected aims or demands evolve, the schedule or the plan itself may be altered. Thus, if this first-stage plan is adopted, the reservoirs to which the region will be committed at any given time will be only those for which thereis actual immediate need, but coordination will not have been lost. This same kind of flexibility is built into the recommendations relating to flow augmentation for quality control.
Other proposals for major action are self-explanatory or are analyzed in detail in separate sub-task force material. Among these latter is the Potomac National River, as the park proposal is now designated, which represents the most hopeful approach to defending the main stem Potomac against destructive encroachment and enhancing its potential for recreation.
Some of the recommendations presented are relatively small in scope but nonetheless essential to cleaning up, preservation, or other desirable ends. Others aim not toward immediate action but toward research or legislation to clear the way for needed action—examples are those regarding acid mine drainage and the possible need for a new Federal category of "pastoral" or "scenic" rivers in populated regions. And still others are only suggestions that non-Federal jurisdictions act in regard to specific problems that fall within the realm of their responsibility.
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If this body of recommendations is significantly implemented as an initial program, it can lead to a good solid beginning on the things that need to be done in the Potomac Basin. Without treading heavily on the freedom of choice of future populations, it can satisfy the water demands of the Basin during a long enough span of years to give scientists time to examine the full range of evolving alternatives for water management, and planners freedom to choose perhaps better ways of meeting future demands than are now available.
The program can clean up the main streams of the Basin and assure their healthy and copious flow even in time of drought, keep their banks beautiful, and make them more available than they presently are for the people's enjoyment. Even in the major trouble spots of the present time—stretches like the lower North Branch and the metropolitan estuary—dramatic improvement in the appearance of the water and its usefulness for boating and fishing and such things will be possible if the recommendations are followed out to where they lead, though full restoration in such spots, particularly in the estuary, is going to require an expansion of present knowledge and a long-continuing effort on the part of all agencies and jurisdictions.
The program will not assure general protection of the Basin's landscape, for only the Basin's people, generation on generation of them, can assure that. But it can preserve some of the major treasures in that landscape and mitigate some of the worst threats to it. And by fostering projects to illustrate how a respect for the landscape can be put to work, and bringing people into closer contact with the old realities of the Basin's natural world, it can stimulate understanding and feeling that will lead to wider restoration and protection, possibly that general protection that only the people can assure.
If the spirit of these recommendations prevails, we believe that they can lead reasonably soon to a Potomac Basin fit to serve as a model for the nation. And if they are followed by further stages of continuing, flexible, coordinated planning that will apply the best technology to new problems as they arise, keep Basin aims in mind, maintain a high sense of values, and leave open all possible options for the people who come after, the Basin will remain a model. And that has been the aiming point of our study and our planning.
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I. Action aimed at coping with present and future water resource problems in the Potomac Basin as well as contributing strongly to scenic, ecological, and recreational values:
A. An effective water pollution control program is the key to the public's use and enjoyment of the Basin's rivers and streams. Programs are currently under way which will result in continued progress toward enhancing the quality of these waters. The Secretary of the Interior has approved water quality standards for the interstate waters of the Potomac Basin submitted by the States of Maryland, Pennsylvania, West Virginia, and the District of Columbia which call for accelerated remedial programs. Standards submitted by Virginia are currently under review to assure that they will contain comparable requirements. Achievement of the goals established by these standards will require expanded support in the form of legislation, funding, technology, and public awareness to insure their effective implementation.
1. To control organic, chemical, and bacterial pollution of the Potomac River system and achieve compliance with the water quality standards, a program of both immediate and long-run action will be essential:a. During the next five years a series of actions must be taken to control the Basin's most immediate pollution problems:(1) Coordination of Federal, State and local powers, in cooperation with any Basin compact commission or other agency that may be established, to achieve waste treatment measures as required in appropriate standards and comparable levels for intrastate waters. This will call for removal of at least 85 percent of the organic load, or its equivalent, from all municipal and industrial wastes throughout the Basin, besides adequate chlorination of all treated wastes, except that in the Washington metropolitan area at least 90 percent removal will be required because of the volume of wastes involved and their effects upon the estuary. The means toward these goals will consist of new plant construction, additionsto existing plants, and control of combined sewer overflows. Regional or watershed approaches to the extension or improvement of these systems should be encouraged. Improved collection systems and treatment facilities also must be supported by effective training, certification and supervision of operators of the sewerage systems of all jurisdictions.(2) Stimulation of effective action toward meeting similar requirements in handling wastes at all Federal establishments in the Basin, consistent with the nationwide program called for by the Water Pollution Control Executive Order. Where possible, wastes from Federal establishments should be channeled into municipal sewer systems. Adequate budgets for waste disposal at such establishments are a prime necessity, so that Federal agencies will be the pace setters that they must be.(3) Immediate reconvening of the 1957 Enforcement Conference on the Potomac to focus attention on the timetables for controlling pollution in the estuary in the light of water quality standards and also to consider problems of agricultural pollution, sediment, nutrients, dredging and vessel wastes.(4) Strengthening of the continuing surveillance program on all streams in the Basin to insure compliance with water quality standards and to help correct abuses from leaks, spills, and illegal or accidental polluting discharges. Active participation by local, State and interstate agencies with the Federal Government in contingency plans for spills of oil and other hazardous substances in the Basin also is required.(5) Adoption and implementation of regulations and requirements by local and State authorities for control of pollution from boats and marinas. Legislation under consideration by the Congress would permit establishing national standards for control of pollution by vessels.(6) Adoption and implementation by State and local authorities of a policy that will prevent significant quality deterioration in high quality waters.b. Accomplishment of these measures will go far toward assuring a clean Potomac. However, to protect the Basin's waters over the long run, even more must be done.(1) First must come research and investigations to seek better methods of control where existing information and technology are inadequate. This includes:(a) Continuation of current pilot plant demonstration studies of advanced waste treatment processes at Piscataway, Prince William County, Virginia, and District of Columbia waste treatment plants and completion of the chemical, biological, and physical studies of the estuary to establish a basis for upgrading water quality to the maximum feasible degree.(b) Continuation of investigations and demonstration projects to evaluate costs and effectiveness of methods of treating and controlling combined and storm sewer discharges from urban areas, particularly Washington, D.C., to provide cheaper and more effective solutions as partial alternatives to present long-range programs of separation of sanitary from storm sewers in the metropolitan area.(c) Initiation of an engineering study or demonstration project to investigate practicable and acceptable means of disposing of sludge from conventional and advanced waste treatment plants.(d) More complete delineation of sources of nutrients to the free-flowing streams of the Basin and evaluation of methods of nutrient control or reduction. Continued research on nutrient-algal relationships to better define the principal chemical factors which result in nuisance algal growths, particularly in the Potomac estuary.(e) Completion of a survey of agricultural waste sources in the Basin, both organic and chemical, and the application of measures to control them.(f) Acceleration of research to find methods of treating industrial wastes for which suitable methods presently are not available.(g) Evaluation of major point sources of mine drainage in the upstream watersheds of the North Branch of the Potomac River and development of mine drainage abatement measures and control programs which are technically and economically feasible.(2) Concurrently—and at the earliest possible date—must come application of knowledge obtained through research, demonstration projects and field investigations performed within the Potomac Basin and elsewhere. As possible, water quality standards should be upgraded to reflect this new knowledge. Application of findings should include:(a) The progressive practical application of advanced waste treatment and improved methods of treatment or control of combined and storm sewer discharges in metropolitan Washington and elsewhere.(b) Application of additional measures necessary for controlling estuarial pollution still present after maximum feasible waste treatment, including advanced waste treatment, has been provided in the area.(c) Continuing reassessment of the effect of reservoir releases on water quality in the flowing streams of the Basin, after the highest practicable degree of waste treatment has been provided. Such assessment will involve:(1) Reevaluation of the opportunities for obtaining improved water quality objectives through management of reservoir releases and stream flows as individual reservoir projects are considered for construction, in the light of advanced waste treatment, means of coping with agricultural runoff and drainage, and other alternatives made available by that time.(2) Development of the Federal water resources policies which will provide for the most effective application of the streamflow regulation provisions of the Federal Water Pollution Control Act, including equitable cost-sharing arrangements, to assure that streamflow regulation assumes its proper role in relation to other pollution control alternatives for the Basin.
1. To control organic, chemical, and bacterial pollution of the Potomac River system and achieve compliance with the water quality standards, a program of both immediate and long-run action will be essential:
a. During the next five years a series of actions must be taken to control the Basin's most immediate pollution problems:
(1) Coordination of Federal, State and local powers, in cooperation with any Basin compact commission or other agency that may be established, to achieve waste treatment measures as required in appropriate standards and comparable levels for intrastate waters. This will call for removal of at least 85 percent of the organic load, or its equivalent, from all municipal and industrial wastes throughout the Basin, besides adequate chlorination of all treated wastes, except that in the Washington metropolitan area at least 90 percent removal will be required because of the volume of wastes involved and their effects upon the estuary. The means toward these goals will consist of new plant construction, additionsto existing plants, and control of combined sewer overflows. Regional or watershed approaches to the extension or improvement of these systems should be encouraged. Improved collection systems and treatment facilities also must be supported by effective training, certification and supervision of operators of the sewerage systems of all jurisdictions.
(2) Stimulation of effective action toward meeting similar requirements in handling wastes at all Federal establishments in the Basin, consistent with the nationwide program called for by the Water Pollution Control Executive Order. Where possible, wastes from Federal establishments should be channeled into municipal sewer systems. Adequate budgets for waste disposal at such establishments are a prime necessity, so that Federal agencies will be the pace setters that they must be.
(3) Immediate reconvening of the 1957 Enforcement Conference on the Potomac to focus attention on the timetables for controlling pollution in the estuary in the light of water quality standards and also to consider problems of agricultural pollution, sediment, nutrients, dredging and vessel wastes.
(4) Strengthening of the continuing surveillance program on all streams in the Basin to insure compliance with water quality standards and to help correct abuses from leaks, spills, and illegal or accidental polluting discharges. Active participation by local, State and interstate agencies with the Federal Government in contingency plans for spills of oil and other hazardous substances in the Basin also is required.
(5) Adoption and implementation of regulations and requirements by local and State authorities for control of pollution from boats and marinas. Legislation under consideration by the Congress would permit establishing national standards for control of pollution by vessels.
(6) Adoption and implementation by State and local authorities of a policy that will prevent significant quality deterioration in high quality waters.
b. Accomplishment of these measures will go far toward assuring a clean Potomac. However, to protect the Basin's waters over the long run, even more must be done.
(1) First must come research and investigations to seek better methods of control where existing information and technology are inadequate. This includes:
(a) Continuation of current pilot plant demonstration studies of advanced waste treatment processes at Piscataway, Prince William County, Virginia, and District of Columbia waste treatment plants and completion of the chemical, biological, and physical studies of the estuary to establish a basis for upgrading water quality to the maximum feasible degree.
(b) Continuation of investigations and demonstration projects to evaluate costs and effectiveness of methods of treating and controlling combined and storm sewer discharges from urban areas, particularly Washington, D.C., to provide cheaper and more effective solutions as partial alternatives to present long-range programs of separation of sanitary from storm sewers in the metropolitan area.
(c) Initiation of an engineering study or demonstration project to investigate practicable and acceptable means of disposing of sludge from conventional and advanced waste treatment plants.
(d) More complete delineation of sources of nutrients to the free-flowing streams of the Basin and evaluation of methods of nutrient control or reduction. Continued research on nutrient-algal relationships to better define the principal chemical factors which result in nuisance algal growths, particularly in the Potomac estuary.
(e) Completion of a survey of agricultural waste sources in the Basin, both organic and chemical, and the application of measures to control them.
(f) Acceleration of research to find methods of treating industrial wastes for which suitable methods presently are not available.
(g) Evaluation of major point sources of mine drainage in the upstream watersheds of the North Branch of the Potomac River and development of mine drainage abatement measures and control programs which are technically and economically feasible.
(2) Concurrently—and at the earliest possible date—must come application of knowledge obtained through research, demonstration projects and field investigations performed within the Potomac Basin and elsewhere. As possible, water quality standards should be upgraded to reflect this new knowledge. Application of findings should include:
(a) The progressive practical application of advanced waste treatment and improved methods of treatment or control of combined and storm sewer discharges in metropolitan Washington and elsewhere.
(b) Application of additional measures necessary for controlling estuarial pollution still present after maximum feasible waste treatment, including advanced waste treatment, has been provided in the area.
(c) Continuing reassessment of the effect of reservoir releases on water quality in the flowing streams of the Basin, after the highest practicable degree of waste treatment has been provided. Such assessment will involve:
(1) Reevaluation of the opportunities for obtaining improved water quality objectives through management of reservoir releases and stream flows as individual reservoir projects are considered for construction, in the light of advanced waste treatment, means of coping with agricultural runoff and drainage, and other alternatives made available by that time.
(2) Development of the Federal water resources policies which will provide for the most effective application of the streamflow regulation provisions of the Federal Water Pollution Control Act, including equitable cost-sharing arrangements, to assure that streamflow regulation assumes its proper role in relation to other pollution control alternatives for the Basin.
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2. For the control of sedimentation and erosion and their effects, the following action will be needed:
a. Cooperative Federal-State-local efforts to accelerate land-use adjustment and land treatment in the Basin.b. Adoption by State, county and municipal governments of good strong statutes and ordinances for the control of erosion from construction sites and other sources in urban areas.c. Completion of current experiments on Rock Creek in the reduction of storm water turbidity by means of coagulants, and extension of such research to the Potomac estuary.
a. Cooperative Federal-State-local efforts to accelerate land-use adjustment and land treatment in the Basin.
b. Adoption by State, county and municipal governments of good strong statutes and ordinances for the control of erosion from construction sites and other sources in urban areas.
c. Completion of current experiments on Rock Creek in the reduction of storm water turbidity by means of coagulants, and extension of such research to the Potomac estuary.
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B. With primary reference to problems of water supply and flood damage in the Basin, steps must be taken to cope with present or looming municipal and industrial demands and to guard against future troubles:
1. Large-scale or general problems call for large or general actions:a. We recommend that major Basin water supply problems, including the need for some storage to restore and protect the quality of the water in the flowing rivers and the needs for flat-water recreation, be dealt with as follows:(1) By prompt funding and construction of the authorized Bloomington Reservoir on the Potomac North Branch, for benefits in that region and downstream, including the Washington metropolis.(2) By completing action on the reports on the several additional major reservoirs which, together with Bloomington, will constitute a "package" of drought insurance against the Basin's most critical expected water demands during at least the next 20 years. Three of the additional reservoirs are those on Town Creek, Little Cacapon Creek, and Sideling Hill Creek, recommended in thePotomac Interim Report to the Presidentof January 1966 and detailed in subsequent studies, for benefits in terms of downstream water supply and exceptional recreational opportunity. Another reservoir, North Mountain on Back Creek, was considered to be essential for meeting these needs by the Governor's Potomac Advisory Committee in its consideration of the 1966Interim Reportand was recommended in the Corps of EngineersPotomac River Basin Report of 1963. Additional reservoirs include the Sixes Bridge Reservoir on the Monocacy and the Verona Reservoir on the Middle River tributary of the South Fork of the Shenandoah, also recommended in the Corps of Engineers 1963 report and currently being restudied in detail to meet present projections of local and downstream needs.According to present data, for maximum usefulness and safety, Bloomingtonshould be completed on an expeditious basis and the others at appropriate intervals thereafter in relation to growth of demand.To make certain that desirable flexibility in planning will be maintained, the following conditions should be borne in mind by all Federal, State, or interstate agencies with present or future concern with Basin affairs, and by the United States Congress and the State legislatures, and should be taken into consideration in the shaping of authorizing legislation:(a) Individual reservoirs should be susceptible to reevaluation and modification during design stage in light of new techniques of water supply—including demonstrated feasibility and acceptability of the upper estuary for this purpose—and of water quality control, or unforeseeable modifications of aims or expected demands, should such change be determined to be beneficial to the overall well-being of the Basin.(b) Prior to construction of any reservoir with benefits for recreation and water quality downstream, responsible State and local agencies should be required to furnish assurances that the recreational and scenic qualities of the banks of the rivers so benefited will be amply protected.(3) By the continuing assessment by the Corps of Engineers of the water supply needs of the Washington metropolitan area with the objective of meeting future demands as they develop.(4) By research and investigation to ensure a sound scientific basis for future action in relation to the Basin's water resources and to provide maximum flexibility of choice to technicians, planners, and decision makers:(a) A full-scale and continuing water data collection program to be conducted in the Basin by the U.S. Geological Survey, with the object of building and keeping up to date the facts relevant to the river system and related aquifers.(b) Specific and continuing research by the Department of the Interior as well as other agencies into the nature and feasibility of a full range of possible alternative sources of water supply in the Basin, including new technological approaches.(c) A special study should be made, based on extension and coordination of studies now authorized or under way to determine the feasibility and acceptability of using the upper estuary as a future source of domestic water to supplement the water supply for the metropolitan area. The States of Maryland and Virginia, the District of Columbia and the Metropolitan Council of Governments should also be associated with this study.b. To begin to cope with major or general flooding problems in the Basin and to prevent future potential flood damages, the following actions should be taken:(1) Assignment of high priority, by Federal, State, and local interests, to flood mapping and flood plain information studies which will provide complete coverage of the main stem of the Potomac River from Cumberland, Maryland, to below Alexandria, Virginia, including the Washington metropolitan area, with the purpose of defining flood hazards along the river for use by planners, investment agencies and Government agencies at all levels. Elsewhere in the Basin, priorities for such mapping and studies of all significant flood plains should be assigned and the program undertaken as soon as practicable, with primary attention to those areas where pressures for flood plain development and potential flood damage are greatest.Untitled(2) Action by the Corps of Engineers to define a program of active and passive flood alleviation measures for the Washington metropolitan area, and all possible emphasis by other concerned Federal agencies on flood-proofing and other devices for averting flood damage at and around the capital city.Untitled(3) Continuing study by all agencies of the problem of adjusting current policies so as to stimulate reasonable, fair, economic, and esthetically desirable action toward flood damage reduction not only in the Potomac Basin but elsewhere in the nation, in line with the principles enunciated in the 1966 report of the President's Task Force on the Federal Flood Control Policy.
1. Large-scale or general problems call for large or general actions:
a. We recommend that major Basin water supply problems, including the need for some storage to restore and protect the quality of the water in the flowing rivers and the needs for flat-water recreation, be dealt with as follows:
(1) By prompt funding and construction of the authorized Bloomington Reservoir on the Potomac North Branch, for benefits in that region and downstream, including the Washington metropolis.
(2) By completing action on the reports on the several additional major reservoirs which, together with Bloomington, will constitute a "package" of drought insurance against the Basin's most critical expected water demands during at least the next 20 years. Three of the additional reservoirs are those on Town Creek, Little Cacapon Creek, and Sideling Hill Creek, recommended in thePotomac Interim Report to the Presidentof January 1966 and detailed in subsequent studies, for benefits in terms of downstream water supply and exceptional recreational opportunity. Another reservoir, North Mountain on Back Creek, was considered to be essential for meeting these needs by the Governor's Potomac Advisory Committee in its consideration of the 1966Interim Reportand was recommended in the Corps of EngineersPotomac River Basin Report of 1963. Additional reservoirs include the Sixes Bridge Reservoir on the Monocacy and the Verona Reservoir on the Middle River tributary of the South Fork of the Shenandoah, also recommended in the Corps of Engineers 1963 report and currently being restudied in detail to meet present projections of local and downstream needs.
According to present data, for maximum usefulness and safety, Bloomingtonshould be completed on an expeditious basis and the others at appropriate intervals thereafter in relation to growth of demand.
To make certain that desirable flexibility in planning will be maintained, the following conditions should be borne in mind by all Federal, State, or interstate agencies with present or future concern with Basin affairs, and by the United States Congress and the State legislatures, and should be taken into consideration in the shaping of authorizing legislation:
(a) Individual reservoirs should be susceptible to reevaluation and modification during design stage in light of new techniques of water supply—including demonstrated feasibility and acceptability of the upper estuary for this purpose—and of water quality control, or unforeseeable modifications of aims or expected demands, should such change be determined to be beneficial to the overall well-being of the Basin.
(b) Prior to construction of any reservoir with benefits for recreation and water quality downstream, responsible State and local agencies should be required to furnish assurances that the recreational and scenic qualities of the banks of the rivers so benefited will be amply protected.
(3) By the continuing assessment by the Corps of Engineers of the water supply needs of the Washington metropolitan area with the objective of meeting future demands as they develop.
(4) By research and investigation to ensure a sound scientific basis for future action in relation to the Basin's water resources and to provide maximum flexibility of choice to technicians, planners, and decision makers:
(a) A full-scale and continuing water data collection program to be conducted in the Basin by the U.S. Geological Survey, with the object of building and keeping up to date the facts relevant to the river system and related aquifers.
(b) Specific and continuing research by the Department of the Interior as well as other agencies into the nature and feasibility of a full range of possible alternative sources of water supply in the Basin, including new technological approaches.
(c) A special study should be made, based on extension and coordination of studies now authorized or under way to determine the feasibility and acceptability of using the upper estuary as a future source of domestic water to supplement the water supply for the metropolitan area. The States of Maryland and Virginia, the District of Columbia and the Metropolitan Council of Governments should also be associated with this study.
b. To begin to cope with major or general flooding problems in the Basin and to prevent future potential flood damages, the following actions should be taken:
(1) Assignment of high priority, by Federal, State, and local interests, to flood mapping and flood plain information studies which will provide complete coverage of the main stem of the Potomac River from Cumberland, Maryland, to below Alexandria, Virginia, including the Washington metropolitan area, with the purpose of defining flood hazards along the river for use by planners, investment agencies and Government agencies at all levels. Elsewhere in the Basin, priorities for such mapping and studies of all significant flood plains should be assigned and the program undertaken as soon as practicable, with primary attention to those areas where pressures for flood plain development and potential flood damage are greatest.
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(2) Action by the Corps of Engineers to define a program of active and passive flood alleviation measures for the Washington metropolitan area, and all possible emphasis by other concerned Federal agencies on flood-proofing and other devices for averting flood damage at and around the capital city.
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(3) Continuing study by all agencies of the problem of adjusting current policies so as to stimulate reasonable, fair, economic, and esthetically desirable action toward flood damage reduction not only in the Potomac Basin but elsewhere in the nation, in line with the principles enunciated in the 1966 report of the President's Task Force on the Federal Flood Control Policy.
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2. Water supply or flooding problems in localized areas may often be solved with headwater reservoirs which may be included in watershed plans developed by local sponsoring organizations with assistance from the Soil Conservation Service of the Department of Agriculture. Such plans provide for the conservation and development of both the soil and water resources of the watershed. Preliminary studies indicatethat headwater reservoirs are needed and feasible in 61 small watersheds in the Basin. These small headwater reservoirs, designed primarily for local flood prevention, may include storage for sediment, water supply, water quality control or recreation.
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II. Action relating specifically to the protection and restoration of the Potomac Basin's scenic and natural assets, and to their enjoyment by the public:
A. At the critically important level of local planning, governments need to provide incentives toward wise and decent treatment of the environment in all possible ways, including:
1. Careful examination of all Federal and State programs and policies directly or indirectly influential on the landscape, to make certain that their effects are beneficial or their adverse effects are minimized and that they encourage rather than disrupt local efforts to avert blight even while achieving sound growth. Obvious connections exist between good local environments and such things as planning aid programs and grants for parks and recreation areas, but other grant programs, public works, road and utility routings, tax and mortgage practices, the proper or improper design of government facilities, and many other Federal or State activities have relevance in this respect.2. Dissemination of knowledge about strong, effective planning tools and procedures, as such knowledge accumulates. Of particular Basinwide interest will be the results of the application of Soil Conservation Service watershed programs in controlling erosion in urbanizing stream basins in the Washington metropolitan area, and the lessons learned therefrom. The Geological Survey's investigations of the resources of the Basin are a continuing source of essential information for planning. For example, the studies of the effects of urban development on streams and sediment will be especially pertinent to land-use planning.
1. Careful examination of all Federal and State programs and policies directly or indirectly influential on the landscape, to make certain that their effects are beneficial or their adverse effects are minimized and that they encourage rather than disrupt local efforts to avert blight even while achieving sound growth. Obvious connections exist between good local environments and such things as planning aid programs and grants for parks and recreation areas, but other grant programs, public works, road and utility routings, tax and mortgage practices, the proper or improper design of government facilities, and many other Federal or State activities have relevance in this respect.
2. Dissemination of knowledge about strong, effective planning tools and procedures, as such knowledge accumulates. Of particular Basinwide interest will be the results of the application of Soil Conservation Service watershed programs in controlling erosion in urbanizing stream basins in the Washington metropolitan area, and the lessons learned therefrom. The Geological Survey's investigations of the resources of the Basin are a continuing source of essential information for planning. For example, the studies of the effects of urban development on streams and sediment will be especially pertinent to land-use planning.
B. The lifelines of the Basin's landscape, its flowing rivers and streams, badly need protection against rapidly increasing encroachment along their banks, and should be mademore available for public use and enjoyment. For these purposes, the following measures are strongly recommended:
1. Prompt legislative authorization, funding, and establishment of a Potomac National River complex consisting of Federal, State, and local components to provide a "green sheath" of varying width for the main stem of the river from Washington to Cumberland, Maryland. The preservation of this portion of the river and its banks, and their accessibility, are clearly of importance and warrant such treatment. The National River, studied and refined in the light of much government and public comment received since its initial mention in thePotomac Interim Report, is detailed in the legislative proposal now being considered by Congress.2. Completion of the long-deferred restoration and improvement of public facilities along the C. & O. Canal, a project which can be begun immediately and will mesh with the Potomac National River proposal, since the Canal will be a part of the proposed River. Certain of the old C. & O. feeder dams should be rehabilitated or rebuilt, sections of the Canal rewatered, and better public access provided.3. Studies of the Cacapon, Shenandoah, and South Branch Potomac Rivers to determine the most feasible way to preserve all or portions of these scenic and important tributaries in a relatively unspoiled state. Possibilities here are protection under State legislation, or the establishment of a new Federal category of pastoral or scenic rivers as a protective measure for streams in settled regions such as would be authorized under legislation pending in the Congress.4. Encouragement of local action to preserve the banks of smaller free-flowing streams by zoning, park acquisition, or other means.5. Provision, under auspices of State fish and wildlife agencies or otherwise, or better facilities for public access to all main streams—including, where appropriate, roads, trails, parking areas, boat launching ramps, and public transportation.
1. Prompt legislative authorization, funding, and establishment of a Potomac National River complex consisting of Federal, State, and local components to provide a "green sheath" of varying width for the main stem of the river from Washington to Cumberland, Maryland. The preservation of this portion of the river and its banks, and their accessibility, are clearly of importance and warrant such treatment. The National River, studied and refined in the light of much government and public comment received since its initial mention in thePotomac Interim Report, is detailed in the legislative proposal now being considered by Congress.
2. Completion of the long-deferred restoration and improvement of public facilities along the C. & O. Canal, a project which can be begun immediately and will mesh with the Potomac National River proposal, since the Canal will be a part of the proposed River. Certain of the old C. & O. feeder dams should be rehabilitated or rebuilt, sections of the Canal rewatered, and better public access provided.
3. Studies of the Cacapon, Shenandoah, and South Branch Potomac Rivers to determine the most feasible way to preserve all or portions of these scenic and important tributaries in a relatively unspoiled state. Possibilities here are protection under State legislation, or the establishment of a new Federal category of pastoral or scenic rivers as a protective measure for streams in settled regions such as would be authorized under legislation pending in the Congress.
4. Encouragement of local action to preserve the banks of smaller free-flowing streams by zoning, park acquisition, or other means.
5. Provision, under auspices of State fish and wildlife agencies or otherwise, or better facilities for public access to all main streams—including, where appropriate, roads, trails, parking areas, boat launching ramps, and public transportation.
C. The historic Potomac estuary, with nearly a quarter of a million acres of water surface and hundreds of miles of varied and scenic shoreline, is a rich recreational and wildlife asset as well as a fisheries resource of enormous value. Even after water quality programs rescue its upper reaches from the heavy pollution to which they are presentlysubject, however, more knowledge will be needed than presently exists to make certain that its intricate processes continue to function productively; protection of its shores against growing inappropriate encroachment will be an urgent problem; and the possibility of its use by the public for recreation will need to be assured:
1. A cooperative study should be undertaken by Federal agencies, the States of Maryland and Virginia, the District of Columbia, and the Metropolitan Washington Council of Governments, coordinated through the Bureau of Outdoor Recreation, to identify recreational and other open space and specific resources along the tidal Potomac downstream from Chain Bridge that should be established as estuarine units of a Potomac National River, as State or county parks, or as units of a system of recreation areas for the District of Columbia and its metropolitan environs. The Department of the Interior is assisting the Department of Defense to determine how military establishments along the Potomac might contribute toward meeting regional recreational needs, including public access and use where feasible. These studies should be completed and the findings reported to the Congress and to State and local governments at the earliest possible time.2. As an initial measure toward achieving protection of the concentrated productivity of the estuary's marshes and wetlands, Federal, State and local agencies, and the Potomac River Fisheries Commission, under the leadership of the Bureau of Sport Fisheries and Wildlife, should undertake a study, to be completed within three years, to identify key areas of this sort; where possible, acquisition of such areas should proceed under existing programs. In view of the recreation potential generally associated with marsh and wetland areas, this study should be coordinated closely with the study recommended under item 1 above. The Department of Defense should examine its land holdings along the estuary to determine if zones of conservation for fish and wildlife in the marshes and wetlands can be established immediately.3. Action should be taken as quickly as possible to acquire the National Wildlife Refuge on Mason Neck in order to consolidate the protection of vital open space on that peninsula. Fiscal year 1969 appropriations for the Department of the Interior include funds to begin such action.4. It is urgently to be hoped that legislation aimed at protecting American estuaries and increasing human knowledge of their processes, currently before Congress, will be passed in the most meaningful possible form, to the benefit of the Potomac estuary as well as all others.5. The U. S. Army Corps of Engineers should continue to regulate the development of structures built into the navigable waters and, in cooperation with local entities, study means of ridding the Potomac estuary of permanent and semipermanent debris and floating debris.6. To guard against the loss of public assets of great worth along the estuary, the General Services Administration, in cooperation with the Department of the Interior, should give full consideration to recreation, fish and wildlife, scenic and other conservation values at the time any Federal installation becomes surplus to defense of other needs.
1. A cooperative study should be undertaken by Federal agencies, the States of Maryland and Virginia, the District of Columbia, and the Metropolitan Washington Council of Governments, coordinated through the Bureau of Outdoor Recreation, to identify recreational and other open space and specific resources along the tidal Potomac downstream from Chain Bridge that should be established as estuarine units of a Potomac National River, as State or county parks, or as units of a system of recreation areas for the District of Columbia and its metropolitan environs. The Department of the Interior is assisting the Department of Defense to determine how military establishments along the Potomac might contribute toward meeting regional recreational needs, including public access and use where feasible. These studies should be completed and the findings reported to the Congress and to State and local governments at the earliest possible time.
2. As an initial measure toward achieving protection of the concentrated productivity of the estuary's marshes and wetlands, Federal, State and local agencies, and the Potomac River Fisheries Commission, under the leadership of the Bureau of Sport Fisheries and Wildlife, should undertake a study, to be completed within three years, to identify key areas of this sort; where possible, acquisition of such areas should proceed under existing programs. In view of the recreation potential generally associated with marsh and wetland areas, this study should be coordinated closely with the study recommended under item 1 above. The Department of Defense should examine its land holdings along the estuary to determine if zones of conservation for fish and wildlife in the marshes and wetlands can be established immediately.
3. Action should be taken as quickly as possible to acquire the National Wildlife Refuge on Mason Neck in order to consolidate the protection of vital open space on that peninsula. Fiscal year 1969 appropriations for the Department of the Interior include funds to begin such action.
4. It is urgently to be hoped that legislation aimed at protecting American estuaries and increasing human knowledge of their processes, currently before Congress, will be passed in the most meaningful possible form, to the benefit of the Potomac estuary as well as all others.
5. The U. S. Army Corps of Engineers should continue to regulate the development of structures built into the navigable waters and, in cooperation with local entities, study means of ridding the Potomac estuary of permanent and semipermanent debris and floating debris.
6. To guard against the loss of public assets of great worth along the estuary, the General Services Administration, in cooperation with the Department of the Interior, should give full consideration to recreation, fish and wildlife, scenic and other conservation values at the time any Federal installation becomes surplus to defense of other needs.
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D. State fish and wildlife conservation agencies in the Basin need to strengthen their programs if hunting and fishing opportunities are to meet the growing demand and if the broad spectrum of wildlife essential to a healthy landscape is to be maintained:
1. High priority and ample funds should be assigned to the improvement and development of wildlife habitat throughout the Basin, and special attention paid to the stimulation of good hunting and fishing opportunity on private lands.2. Research and management programs of the fish and wildlife agencies are vital, and need expansion based in broad public support and adequate funding.
1. High priority and ample funds should be assigned to the improvement and development of wildlife habitat throughout the Basin, and special attention paid to the stimulation of good hunting and fishing opportunity on private lands.
2. Research and management programs of the fish and wildlife agencies are vital, and need expansion based in broad public support and adequate funding.
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E. National Forest lands are the most massive scenic, ecological, and recreational asset in public ownership in the Basin, and Forest Service programs have beneficial effects far beyond the National Forests' limits. Action specifically relating to these lands and programs is vital to landscape protection and recreational development, and should involve the following:
1. To preserve the natural beauty of the North and South Forks of the Shenandoah River above their confluence, to assure public access, to provide for developmentand public use of the recreational potential of the streams, mountains, and forests in this area and conservation of its watersheds and natural resources, a National Recreation Area should be established, to be administered by the Secretary of Agriculture and to be comprised of the existing Massanutten Unit of the George Washington National Forest and such adjacent areas as may be needed to accomplish the purposes enumerated above.2. Development of the Spruce Knob-Seneca Rocks National Recreation Area, designated by Congress in 1965, should be accelerated.3. Other National Forest lands in the Basin should also be adapted to a variety of compatible recreational uses, and their beauty and natural functioning protected by watershed management and the improvement of wildlife habitat, at an accelerated pace for early results.4. In the interest of consolidation of this great resource, the Secretary of Agriculture should continue discussion with States, local governments, and private citizens, leading to extension of the National Forests on the upper reaches of the Potomac.5. To enhance and increase the widely sought opportunity for water-related recreation in the National Forest lands as well as to contribute to the Forests' functional health, two measures are recommended:a. Acceleration of work to improve the hydrologic characteristics of these lands, with the purpose of decreasing damage from rapid runoff and increasing the flow of clean natural water in the streams during critical low-flow periods.b. Installation of that portion of the Department of Agriculture's upstream watershed improvement program consisting of some 40 small reservoirs within the National Forests, and recreational development of the sites in a manner compatible with State recreation planning.6. To encourage and help non-Federal forest landowners in the Basin to maintain forest cover and develop their woodlands for fish and game production, natural beauty, and recreation, existing Forest Service, State, and private forestry programs should be accelerated.
1. To preserve the natural beauty of the North and South Forks of the Shenandoah River above their confluence, to assure public access, to provide for developmentand public use of the recreational potential of the streams, mountains, and forests in this area and conservation of its watersheds and natural resources, a National Recreation Area should be established, to be administered by the Secretary of Agriculture and to be comprised of the existing Massanutten Unit of the George Washington National Forest and such adjacent areas as may be needed to accomplish the purposes enumerated above.
2. Development of the Spruce Knob-Seneca Rocks National Recreation Area, designated by Congress in 1965, should be accelerated.
3. Other National Forest lands in the Basin should also be adapted to a variety of compatible recreational uses, and their beauty and natural functioning protected by watershed management and the improvement of wildlife habitat, at an accelerated pace for early results.
4. In the interest of consolidation of this great resource, the Secretary of Agriculture should continue discussion with States, local governments, and private citizens, leading to extension of the National Forests on the upper reaches of the Potomac.
5. To enhance and increase the widely sought opportunity for water-related recreation in the National Forest lands as well as to contribute to the Forests' functional health, two measures are recommended:
a. Acceleration of work to improve the hydrologic characteristics of these lands, with the purpose of decreasing damage from rapid runoff and increasing the flow of clean natural water in the streams during critical low-flow periods.
b. Installation of that portion of the Department of Agriculture's upstream watershed improvement program consisting of some 40 small reservoirs within the National Forests, and recreational development of the sites in a manner compatible with State recreation planning.
6. To encourage and help non-Federal forest landowners in the Basin to maintain forest cover and develop their woodlands for fish and game production, natural beauty, and recreation, existing Forest Service, State, and private forestry programs should be accelerated.
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F. The public's opportunity to appreciate and enjoy the rich variety of the Basin's landscape is hampered now by a shortage of suitable routes designed to furnish that opportunity. Two systems of such routes would link together the Basin's most fundamental attractions and connect it with the amenities of other regions:
1. Studies are already well advanced toward the definition of needs for recreation and scenic motoring tied in with the existing George Washington Memorial Parkway, Skyline Drive, and Blue Ridge Parkway. They should be completed and implemented when feasible in consultation with the Department of Transportation. A route that warrants equal consideration would be the extension of the George Washington Memorial Parkway from Mount Vernon to Yorktown as recommended in thePotomac Interim Report to the President.2. A Basinwide system of trails for hiking, bicycling, and horseback travel has been studied and its details are presented in a separate report. This compatible and organic means of putting town and city people in touch with the natural environment and the countryside is an indispensable element of a full recreational program for the Basin, and it is strongly to be hoped that the establishment of the Potomac Heritage Trail along the river and the protection of the ridgeline Appalachian Trail—the two trunk elements of the system—will be promptly achieved under the legislation recently acted upon by the Congress.
1. Studies are already well advanced toward the definition of needs for recreation and scenic motoring tied in with the existing George Washington Memorial Parkway, Skyline Drive, and Blue Ridge Parkway. They should be completed and implemented when feasible in consultation with the Department of Transportation. A route that warrants equal consideration would be the extension of the George Washington Memorial Parkway from Mount Vernon to Yorktown as recommended in thePotomac Interim Report to the President.
2. A Basinwide system of trails for hiking, bicycling, and horseback travel has been studied and its details are presented in a separate report. This compatible and organic means of putting town and city people in touch with the natural environment and the countryside is an indispensable element of a full recreational program for the Basin, and it is strongly to be hoped that the establishment of the Potomac Heritage Trail along the river and the protection of the ridgeline Appalachian Trail—the two trunk elements of the system—will be promptly achieved under the legislation recently acted upon by the Congress.
G. Some of the most basic beauty of the Potomac Basin is found in its older towns and its inhabited countryside, where centuries of history are reflected in structures, historic sites, and types of land use. To protect this beauty and richness against unnecessary destruction and degradation, vigorous action is indicated:
1. The Basin States should consider the possibility of utilizing their State Historical Survey Commissions not only to designate and protect significant townscapes and rural landscapes as historical districts, but also to monitor encroachments and inappropriate construction affecting esthetic and associative values at or near historic sites. State legislation to restrict the exercise of eminent domain by utility companies for pipelines and transmission line routes in such areas is highly desirable.2. If the Basin's traditional farms are to be preserved not only for their beauty and asopen space near towns and cities but as an element in the economic health of the region, action at all levels of government will be needed. Tax relief as a tool to encourage continued farming on land in danger of urban development needs to be utilized more widely by counties. Programs should be developed that will help preserve the contribution that farms make to the life and landscape of the Basin. Imaginative new approaches are mandatory if there is to be any hope of coping with this problem.
1. The Basin States should consider the possibility of utilizing their State Historical Survey Commissions not only to designate and protect significant townscapes and rural landscapes as historical districts, but also to monitor encroachments and inappropriate construction affecting esthetic and associative values at or near historic sites. State legislation to restrict the exercise of eminent domain by utility companies for pipelines and transmission line routes in such areas is highly desirable.
2. If the Basin's traditional farms are to be preserved not only for their beauty and asopen space near towns and cities but as an element in the economic health of the region, action at all levels of government will be needed. Tax relief as a tool to encourage continued farming on land in danger of urban development needs to be utilized more widely by counties. Programs should be developed that will help preserve the contribution that farms make to the life and landscape of the Basin. Imaginative new approaches are mandatory if there is to be any hope of coping with this problem.
H. At all levels of government also, a concerted effort must be made to clean up junk, spoil, and debris inherited from misuses of the past and to prevent new accumulations. Over 10,000 acres of surface-mined lands need reclamation, thousands of junked cars mar the landscape, and trash and litter clutter the land and streams. Existing programs must be accelerated and new ones devised. Legislation now before the Congress would establish a cooperative Federal-State program to regulate surface mining operations and to assure the reclamation of areas mined in the future. In addition, it is imperative that Basin Federal and State installations promulgate regulations to prevent accumulations of junk and debris on their lands.
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III. To help ensure that future planning and action in relation to the Potomac Basin's water resources, water-related land resources, and amenities shall proceed in a wise and coordinated manner, we recommend:
A. That citizens of the Basin interested in its overall well-being give serious thought of joining together in a broad-based organization to promote all aspects of that well-being by public education, discussion, monitoring abuses, pressing for good local planning and land use, and reviewing proposals for environmental action in the Basin.B. That the Federal and State governments continue their efforts to define and establish appropriate institutional arrangements for the management and operation of this Potomac Basin program and the furtherance of its principles of protection, preservation, good water management and flexibility. The Potomac River Basin Compact, as proposed in draft form by the Potomac River Basin Advisory Committee, is receiving careful consideration by Federal agencies and citizens, anticipating consideration by State legislative bodies, and the Congress of the United States.
A. That citizens of the Basin interested in its overall well-being give serious thought of joining together in a broad-based organization to promote all aspects of that well-being by public education, discussion, monitoring abuses, pressing for good local planning and land use, and reviewing proposals for environmental action in the Basin.
B. That the Federal and State governments continue their efforts to define and establish appropriate institutional arrangements for the management and operation of this Potomac Basin program and the furtherance of its principles of protection, preservation, good water management and flexibility. The Potomac River Basin Compact, as proposed in draft form by the Potomac River Basin Advisory Committee, is receiving careful consideration by Federal agencies and citizens, anticipating consideration by State legislative bodies, and the Congress of the United States.
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