SCIENCE, RESEARCH, AND DEVELOPMENT* The principal information base for decisions on environmental affairs is scientific data. These range from cause-and-effect relationships of contaminants or changes in the environment to innovations in technology for restoring and maintaining environmental quality. Because of the comprehensive nature of environmental problems, basic research from many disciplines is utilized. In addition, a great deal of pollution control legislation specifically authorizes a wide variety of applied research in order to set standards and stimulate the development of pollution control technology. Tables I and II demonstrate the wide diversity of funds for environmental control research and development. The tables present selected budget data from a Governmentwide survey by the Office of Management and Budget in October 1970. Categorization of scientific activities is often difficult, and so the survey uses two definitions, one directly concerned with pollution control and the other for programs with other purposes but contributing to the solution of the problem. TABLE 1.-RESEARCH, DEVELOPMENT AND DEMONSTRATION, INCLUDING CONTRACTS AND GRANTS TABLE II.-RESEARCH, DEVELOPMENT AND DEMONSTRATION (INCLUDING GRANTS AND CONTRACTS) 1971 *Prepared by Richard A. Carpenter, Chief, Environmental Policy Division, LEGISLATION The science of ecology deals with the interrelationships of organisms with their surroundings. This integrating discipline is less than a hundred years old, and the United States numbers only a few thousand ecologists holding Ph. D. degrees. Recently it has been thrust into the forefront of environmental management. The National Environmental Policy Act calls for all agencies to "initiate and utilize ecological information in the planning and development of resource-oriented projects." The Council on Environmental Quality, created by the Act, is directed "to conduct investigations, studies, surveys, research, and analyses relating to ecological systems and environmental quality." This function has since been transferred to the Environmental Protection Agency by Reorganization Plan No. 3. The impact of these statutory provisions will be increased activity in ecology to strengthen this critical science. The International Biological Program is a long-range study of baseline relationships in various ecosystems (e.g., arctic tundra, grasslands) around the world. Legislation expressing the support of Congress for this program was introduced and enacted. It demonstrates congressional concern for the development of fundamental data which will assist in pollution control and other environmental quality maintenance programs on an international level. INTERNATIONAL BIOLOGICAL PROGRAM House: House Joint Resolution 589. Reported (No. 91-302) from Committee on Science and Astronautics, June 11, 1969. Passed House November 13, 1969. Senate: House Joint Resolution 589. Reported (No. 91-1043) from Committee on Labor and Public Welfare, July 30, 1970. Pased Senate, amended, August 3, 1970. House agreed to Senate amendments September 23, 1970. Approved: October 7, 1970. Public Law 91-438. Another proposal enacted dealt with environmental hazards to health. Title V of the 1970 amendment to the Public Health Service Act directs the President to commence a study and report to the Congress on hazards to human health and safety created by environmental pollution, medical assistance available when emergency levels are reached, and measures other than pollution abatement to alleviate these effects. PUBLIC HEALTH SERVICE ACT AMENDMENTS House: H.R. 17570. Reported (No. 91-1297) July 13, 1970, from Committee on Interstate and Foreign Commerce. Passed House August 12, 1970. Senate: S. 3355. Reported (No. 91-1090) August 11, 1970. Conference: Reported (No. 91-1590) October 8, 1970. House agreed October 13, 1970; Senate agreed October 14, 1970. Approved: October 30, 1970. Public Law 91-515. A National Institute of Ecology is being developed under a grant to the Ecological Society of America by the National Science Founda tion.1 An entity of the same name was proposed as part of a larger reorganization of Federal science activities. The NIE is viewed as a long-range multidisciplinary basic research apparatus with a central organization to coordinate the work of many laboratories. It would be operated by a consortium of universities and supported mostly with Federal funds. LEGISLATIVE PROPOSALS ENVIRONMENTAL DATA BANK The results of research and development in the environmental sciences must be promptly disseminated to the scientific community and to the decisionmaking process. The Committee on Scientific and Technical Information, of the Office of Science Technology, initiated a study of environmental quality information programs (SEQUIP). This group examined existing federally-funded in formation centers as to their holdings of environmental data. A directory was published in the transcript of hearings on an environmental data bank by the House Merchant Marine and Fisheries Committee. These culminated in the reporting of a bill to establish a national environmental data system by amendment to the National Environmental Policy Act. The data bank was contemplated as a "central national coordinating facility for the selection, storage, analysis, retrieval, and dissemination of information, knowledge, and data relating to the environment." RESEARCH INSTITUTES A number of suggestions for the organization of environmental research were considered during the 91st Congress. A proposal to create a system of national environmental laboratories was also introduced. This legislation contemplated six regional laboratories utilizing existing Federal facilities to the greatest extent possible. A central board of trustees would manage the multidisciplinary work of solving environmental problems (as distinct from basic research). The system would be financed through a $250 million trust fund established with Federal money, plus annual appropriations. As an example of the redeployment of Federal laboratories, Argonne National Laboratory has established an environmental center and ORNL has been directing nearly $10 million (approximately 10 percent of its total effort) to environmental problems. The HEW appropriations for fiscal year 1971 included funds for Fort Detrick to be converted to a health research facility (including environmental projects) from its present function in biological warfare.5 An Institute for Environmental Policy Analysis was proposed as an adjunct to the Council on Environmental Quality (the analogy is to the "think tank" Institute of Defense Analysis which serves the Office of Defense Research and Engineering in the Department of De 1 U.S. Congress, House, Committee on Science and Astronautics, Subcommittee on Science, Research, and Development. 1971 National Science Foundation Authorization Feb. 24, 1970, 91st Cong., second sess. 2 U.S. Congress House Committee on Science and Astronautics, The National Institute of Research and Advanced Studies, report before the Subcommittee on Science, Research, and Development, Apr. 15, 1970. 3 "Universities, National Laboratories, and Man's Environment." report CONF-69075, Clearing House for Federal Scientific and Technical Information, Springfield, Va. Oak Ridge National Laboratory. s These funds were deleted in Conference. fense). As a quasi-private organization funded partially by Government and foundation grants, the IEPA could be established without legislation. The concept of this institute stems from a report "Institutions for Effective Management of the Environment" issued by the National Academy of Sciences based on a study at Stanford University in the summer of 1969. OTHER PROPOSALS Core concepts from selected proposals dealing with environmental research include the following: A specific study of the human health hazards of pollutants and possible medical assistance. Another bill emphasized research on emergency procedures; The establishment of a National Environmental Laboratory (or National Laboratory for Environmental Sciences) to provide integrated knowledge of ecological, social and technical problems associated with pollution and environmental degradation; Use of low-interest loans to small business to further the development of new pollution control technology; A study of the potential of tides as a source of electrical energy; A requirement to report all weather modification activities to the Federal Government. Another bill would have established a National Weather Modification Regulating Commission; Special grants to elementary and secondary schools for education in population dynamics. Another bill would have established a National Center for Population and Family Planning; A request to the National Academy of Sciences to study motivational factors in family planning; An Office of Technology Assessment was proposed with major emphasis on environmental impacts. Another bill called for the establishment of an Independent Technology Assessment and Environmental Data Collection Commission; A variety of specific research projects was suggested, such as; authority for studies by the Council on Environmental Quality on the reclamation and recycling of solid wastes; Federal support for the development of a low emission engine; research on lakes and lake areas; effects of pesticides; and, discharging of materials into the oceans. EXECUTIVE REORGANIZATION* The capacity of the Federal Government to manage itself and to carry out the mandates of Congress depends, in large measure, on its organizational structure. In the 91st Congress, no less than in, others before it, the focus of attention on particular problems brought forth reorganization measures to improve the Federal capacity to implement a wide variety of programs. Particular attention to environmental problems in 1969-70 revealed a need for rearrangements in the Federal establishment to manage not only established antipollution and related resource programs, but programs which could be anticipated as Congress moved toward solutions of individual problems. THE ASH COUNCIL On April 5, 1969, President Nixon announced the formation of an Advisory Council on Executive Reorganization to review the executive branch of the Government. The Council, headed by Roy L. Ash, was soon to become known as "the Ash Council." It was directed, in general, to examine appropriate Federal organizational relationships with State and local governments. The President asked in particular that the Council reappraise the organization of environmental protection, or antipollution programs. Recommendations of the Council are discussed at a later point in this chronology. THE ENVIRONMENTAL QUALITY COUNCIL AND THE CITIZEN'S ADVISORY COMMITTEE ON ENVIRONMENTAL QUALITY Following close on the designation of the Advisory Council on Executive Organization, the President ordered the organization of a Cabinet-level Environmental Quality Council. With the President as Chairman, the Council was to take a broad overview of environmental problems, particularly in view of the fact that there was no special staff in the Executive Office of the President to perform such a service. The President's Science Adviser was made Executive Secretary of the new Council, which was intended to coordinate and direct a full Government attack on all forms of pollution. The same Executive order that established the Environmental Quality Council renamed the existing Citizen's Advisory Committee on Recreation and Natural Beauty as the Citizen's Advisory Committee on Environmental Quality, headed by Mr. Laurance S. Rockefeller. At the time of its establishment, the President's Science Adviser said the Environmental Quality Council would give immediate priority to three subjects of environmental concern: the harmful effects of prolonged use of DDT, methods of solid waste disposal, and air pollution. The first meeting of the Council was held in mid-June 1969. *Prepared by Elizabeth M. Boswell, Analyst, Environmental Policy Division. |