DEVELOPMENT OF THE RIVERS OF THE UNITED STATES

REPORT OF THE PRESIDENT'S COMMITTEE ON WATER FLOW

A water policy is needed for the full use, development, and enjoyment of the water resources of the United States. The increasing interest of the American public in the possibilities and problems growing out of the uses and abuses of our rivers and streams has been further stimulated through the progress made by the Tennessee Valley Authority and the work of such committees as that now studying the Mississippi Valley. An evidence of this interest is seen in the series of bills introduced into the Congress providing for the more complete development of the water resources of the United States and culminating in the Norris-Wilson resolution passed by the House and Senate on February 2, 1934.

Resolved, That the President be, and he is hereby, requested to send to the Senate (and to the House of Representatives) a comprehensive plan for the improvement and development of the rivers of the United States with a view of giving the Congress information for the guidance of legislation which will provide for the maximum amount of flood control, navigation, irrigation, and development of hydroelectric power.

ORGANIZATION OF STUDY

By appointment of the President, the Secretary of the Interior, the Secretary of War, the Secretary of Agriculture, and the Secretary of Labor were constituted a committee to advise on the development of a water policy and on the choice of projects.

In order to develop the known facts about various watersheds and to indicate the basins most favorable for early consideration and action, a series of six technical subcommittees were then appointed on February 20, 1934, and assigned regions as shown on the accompanying map.

A list showing the membership of the committees, which represented the Departments of War, Agriculture, and Interior, is included in the accompanying data. The Federal Power Commission was also represented and the National Planning Board acted as a coordinating agency.

The thoroughness with which the subcommittees covered the subject in the short time allowed is commendable and their intensive effort has furnished valuable material in a form suitable for a broad evaluation of the many water projects that have been proposed and studied at various times through the United States.

For example: Bills for the Arkansas and Red Rivers, H.R. 6172, 6224, 6368, 6969, 7339, 7548; Congaree, Santee, etc., H.R. 6483; Skagit, etc., H.R. 6528; Cowlitz and Columbia, etc., H.R. 6613, S. 249, 8. 886; Missouri, H.R. 6897, 8. 1973; White, H.R. 8143; Mississippi Flood Act, amendments; Platte, S. 602.

These reports of the subcommittees have been studied by a reviewing committee composed of engineers in the Interior Department experienced in water resources studies who have prepared a digest of the more bulky reports and added their own recommendations concerning each project.

CRITERIA FOR CHOICE OF PROJECTS

The committee has considered the social and economic values of the various projects involving problems of water supply and pollution, irrigation and drainage, soil erosion and forest protection of watersheds, recreation and scenic or inspirational values, power and flood control, and navigation. In each watershed these uses and abuses of the water resources are capable of development or control with differing emphasis on the value of individual uses or combinations of uses.

Various technical, social, and economic considerations entered into the selection. The urgency of water utilization or other problems in the basins, the timeliness of the project, the extent of benefits with respect to the population affected and the gain to the general welfare by the adoption of the project as compared with its omission represent some of the social viewpoints. The Federal aspects considered were the extent of public-land ownership in the basin, the effect of past Federal commitments in the development on the desirability of further Federal participation and interwatershed, interstate and international problems affecting national interests. Account was also taken of the special suitability of the project for the application of land utilization or other important development policies and the comprehensiveness of the project as representing a desirable field for the coordination of various activities.

TEN SELECTED PROJECTS

In spite of the serious lack of information and plans disclosed in the reports of the technical committees, and fully realizing the preliminary and tentative character of any recommendations based on available facts, it is still possible to select the 10 most promising projects or drainage basins for further development when comprehensive plans shall have been prepared.

The 10 selected river basins, in order of priority, are:

The reasons for the selection of these watersheds, the primary considerations in their development, and the scope of the project in each case are briefly stated as follows:

1. Tennessee Valley.-The continuation and further development of the program outlined by the Tennessee Valley Authority stands first in any program for development of river basins, because of the start already made and the necessity for additional steps to secure the desired results already outlined and approved by the Congress.

2. St. Lawrence-Great Lakes Basin.-A comprehensive plan for the utilization of the water resources of this region does not lend itself to division into a number of separate projects, since but one large basin is included within the drainage area. There is, however, a great degree of flexibility allowed in this project by the extent of the work to be done and the total cost would depend upon the amount of harbor and river channel improvements, the size of power developments, and the extent of flood control undertaken. This cost may be estimated as between $100,000,000 and $200,000,000, exclusive of the cost of navigation improvements to provide channels for oceangoing vessels.

The essential parts of the project proposed are as follows: (1) Navigation improvements (a) for the benefit of navigation within the interior of the United States, and (b) to provide for navigation by ocean vessels; (2) power development; (3) protection of municipal and domestic water supplies; (4) investigation and development of ground water supplies; (5) land conservation consisting of (a) rural land-use adjustment and (b) soil-erosion control; (6) forest protection and maintenance; (7) collection of additional basic stream-flow data; (8) increased opportunities for recreation and the promotion of wild life; and (9) protection and regulation of commercial fisheries. 3. Mississippi River (main stem).—The region embraced by this project includes the main Mississippi River from the mouth of the Ohio to the "passes" and adjacent lands comprising an area of approximately 53,000 square miles. The flood problems of the lower Mississippi River are matters of common knowledge, especially since the great flood of 1927. Stirred by the catastrophe of 1927, the Government adopted a project May 15, 1928, involving the construction of extensive flood-control works, consisting chiefly of levee systems and training of the river channel. The authorized project

has been prosecuted vigorously. An expenditure of $325,000,000 wɛs authorized, of which $97,000,000 remains to be appropriated.

The comprehensive plan contemplates the completion of the existing Federal project for flood control and navigation, the continued study of stream flow and ground-water conditions, the establishment of publicly owned forest in selected areas, and the promotion of services pertaining to soil-erosion control. The region presents, and will continue to present in the future, problems of great magnitude relating to land utilization and social development. The area presents a worthy field for the application of the best intelligence in comprehensive planning.

4. Missouri River (including the Platte).-Due to the great extent of the Missouri River Basin and to the extreme variation in its climatic conditions, the relative importance of the various methods for utilization of its water supply varies widely in different parts of the basin. In the western portion, because of lack of rainfall, irrigation is of primary importance. Although numerous power possibilities exist in that section, opportunities for their successful development are limited by lack of markets for the power. In the more thickly populated eastern portion of the basin there is no need for irrigation and power becomes of greater importance. Dependable commercial navigation upon the main river between Sioux City and the mouth would reduce transportation costs in the movement of a large bulk of freight.

The essential parts of this project consist of the following items: (a) Construction of flood-control works for the protection of cities and towns in the valley.

(b) Completion of the existing navigation project.

(c) Completion of studies of proposed irrigation projects so that work may be started when conditions warrant.

(d) The continued study of stream flow and ground-water conditions.

(e) The provision of technical assistance and leadership in the solution of local problems of erosion control and land use.

The Public Works Administration has allotted funds to irrigation and power projects in the Platte River Basin which suggest the merit of a comprehensive development of this combination of power and irrigation resources on the Platte River. The project involves serious problems of coordination between States, particularly as to water rights. In the western part of the basin the agricultural policy to be followed is dependent on these questions of water rights.

5. Sacramento and San Joaquin Rivers.-The total area of the Sacramento Basin is 27,100 square miles, and the San Joaquin, exclusive of Tulare Basin, is 18,000 square miles. The principal industries are agriculture, manufacturing, and mineral production. Hydroelectric power is highly developed. The increase in the water supply available for irrigation is a very live problem in the Great Central Valley. The comprehensive plan of development for this area includes the construction of a series of foothill reservoirs for the regulation of stream flow in the combined interests of irrigation, salinity control, flood control, power development, and navigation. It also includes the furtherance of irrigation, power, and navigation development. Underground reservoirs of water are to be developed. Extensive water conduits are to be constructed. A notable feature of the project

are works consisting of a reservoir and tunnel for obtaining a supplemental water supply from the neighboring Trinity River drainage basin.

It is contemplated that the project may also include extensive organized measures for forest management, the preservation and restoration of wildlife, the control of hydraulic mining, watershed management, and silt control.

The comprehensive plan previously developed by the California State plan for water conservation and Federal agencies has already been adopted by the State of California. "It is the most carefully considered and complete plan of its kind ever drawn up", according to the technical subcommittee on the Pacific region.

6. Delaware River Basin.-In the upper basin, huge projects for the water supply of New York City must be undertaken in the very near future, followed by similar projects for Philadelphia and the municipalities of northern New Jersey. In this upper basin there is also a great State forest project with high recreational values and a program for withdrawal of submarginal farm lands which tie in directly with the assurance and purity of the water supply.

In the middle and upper basin there are power sites capable of development to serve a dense population and many industries.

A very serious pollution problem is presented on the Schuylkill and below Philadelphia as a result of mine and industrial wastes and city sewage. Such pollution interferes with the normal recreational use of the two rivers near this metropolitan center.

In the lower river and bay, besides navigation, there are fisheries to be considered if pollution is controlled.

7. Colorado River. The area of the Colorado River Basin is 244,000 square miles and includes portions of seven States and a small area of Mexico. Irrigation is essential for the production of farm crops and the problems of water utilization are acute. Because of the climate, the area has a great social and economic importance. The basin presents an outstanding opportunity for the application of conservation measures in water use and wise land utilization policies. The comprehensive plan of development includes the construction of numerous systems of reservoirs and conduits on both the upper and lower rivers, primarily for irrigation and domestic use, although much power can be developed if the market warrants. The plan contemplates making possible transmountain diversions to a limited extent. This does not cover other activities which may appropriately comprise a part of the comprehensive plan of watershed development. The Government is already committed in a substantial way to the development of this basin. The problems are interstate and involve questions of public-land development to an important degree. Continued and increased participation of the Government in the development of the basin presents many advantages. This project is regarded as relatively meritorious. The development of further units would naturally await the preparation of a comprehensive plan and population demand.

8. Columbia River Basin.-Agriculture is the principal industry in this basin, but lumbering and related industries as well as fishing, are important. Irrigation is generally necessary for crop production and is practiced extensively. There are large water-power facilities and a few sites have been developed. Large expenditures have been made