We are delighted to have with us Mr. William J. Stanley, who has come from Chicago.

STATEMENT OF WILLIAM J. STANLEY, DIRECTOR, DEPARTMENT OF AIR POLLUTION CONTROL, CHICAGO, ILL.; ACCOMPANIED BY SAMUEL G. BOORAS, ASSISTANT DIRECTOR, ADMINISTRATIVE AND TECHNICAL SERVICES DIVISION

Mr. STANLEY. I have a prepared statement. Since we are short of time, I think my prepared statement is self-explanatory. I did bring some graphics to illustrate our program. It began much later than the Los Angeles program but we have been able to catch up on some of these programs.

Senator TYDINGS. Why don't we incorporate your statement in its entirety in the record and proceed in any manner you deem feasible. (The prepared statement of Mr. William J. Stanley, referred to. follows:)

STATEMENT OF WILLIAM J. STANLEY, DIRECTOR, DEPARTMENT OF AIR POLLUTION CONTROL, CITY OF CHICAGO

Air Resource Management in the City of Chicago

PLANNING AHEAD FOR CLEAN AIR

This paper discusses the approach used by the City of Chicago, Department of Air Pollution Control to encourage the implementation of an Air Resource Management Program for the City of Chicago. It explores the techniques that were helpful in designing and implementing the City of Chicago's Five-Year Air Resource Management Program and the progress to date.

Discussed in detail is the methodology used to develop an Air Resource Management Program, including selection of goals, design of organization. technical development, definition of sources and effects, systems approach, and long and short range objectives. The importance of a Public Information and Education Program and its relationship to various segments of community leadership are also covered in this paper.

Statistics are abundantly available showing the expansion of our urban areas and all evidence to-date indicates that there will be continuous increase in the density; the need for additional energy, and the demand for better transportation. Also the by-products of increased density in terms of emissions from autos, solid refuse disposal, and air and water pollution will increase proportionally during the next decade. There appears to be no evidence there will be a decrease in these demands upon our air resource within the immediate future.

ELEMENTS OF CHICAGO'S AIR RESOURCE MANAGEMENT PROGRAM

The success of an Air Resource Management Program involves the continued adjustment of social and economic forces to the attainment of Air Quality Standards, Emission Standards, and an active response to an Enforcement Program. These factors must be in tune with the growth and technical changes taking place within a community. The elements of our Air Resource Management Program are as follows:

1. Develop community support for effective legislation to insure program support.

2. Provide adequate financial support to develop and retain capable technical personnel to meet present and future program requirements.

3. Determine community desires for Air Quality and programs required to achieve realistic goals within a definite time period.

4. Design an effective organization capable of operating along functional lines to meet the desired goals of the community.

5. Define the community's sources of emissions; transport of pollutants; and the effects on biological and physical environment.

6. Develop long-range air use plans to meet the growth patterns and demands of industry and commerce.

7. Keep the public informed of program goals and progress with active information and education programs.

Legislative progress

History of smoke control in the United States begins with Chicago, the pioneer among cities recognizing this urban challenge. In 1874, a Citizens' Association was organized to determine the legal aspects of smoke prevention. Research done by this Association resulted in adoption by the Chicago City Council, on April 18, 1881, of a smoke ordinance with a penalty clause, the first in the United States. The ordinance declared the emission of dense smoke from other than private residence to be a nuisance.

In 1891, the Society for the Prevention of Smoke was organized. The purpose of this citizen's group was to give Chicago clean air for visitors to the World's Columbian Exposition to be held in Chicago in 1893.

In 1907, a Smoke Abatement Commission was appointed to make a study which resulted in a new ordinance that created the original Department of Smoke Abatement. In addition to limiting the emission of smoke, the ordinance established a permit system for construction of boiler plants. In 1917, the Department of Smoke Abatement set up the first definitions regarding the use of high and low volatile coals. In 1938, annual inspection of all major Fuel and Refuse Burning Equipment was initiated.

In 1956, Chicago's Mayor Richard J. Daley appointed a citizens' committee, composed of 30 representatives of business, labor, industry, and the public, to draft a new Air Pollution Control Ordinance. This was 75 years after the first smoke abatement legislation.

The new ordinance was adopted by the City Council and became effective in 1959. It transformed the Department of Smoke Abatement into the "Department of Air Pollution Control." This ordinance gave the Department broad enforcement power in addition to strengthening and improving its administration. Some of the strong tools now in use by the Department include: a Permit System, sealing of equipment, revocation of Certificate of Operation, and use of equivalent opacity. The amended ordinance states, in effect, that emissions of any type, regardless of color, source, or composition cannot be equal to or greater than that described as No. 2 on the Ringelmann Chart. Thus, emissions from industrial processes, odors, fumes, and even automobile exhaust come under the control of this comprehensive code.

The ordinance was further amended to prohibit Open Burning of Demolition Debris with the City and the use of equivalent opacity as an enforcement tool.

FINANCIAL SUPPORT

The City of Chicago, under the leadership of Mayor Richard J. Daley, has been fortunate in receiving a steady increase in financial support from the corporate fund to implement our Air Resource Management Program. The appropriation which was $591,000 in 1963 has increased steadily to $770,000 in 1964, $780,000 in 1965, $878,000 in 1966, and $1,041,000 in 1967. We have been fortunate in receiving two Grants from the Public Health Service; one a Program Grant in the amount of one million dollars over a three-year period, and the other a Demonstration Grant in the amount of $89,000 for testing flue-fed incinerator control devices.

The Chicago Program is now costing approximately 34¢ per capita and an additional $1,000,000 would be necessary to implement a program to meet the needs of the community.

GOALS DESIRED WITHIN DEFINED TIME PERIODS

It is essential to define clearly the desired short term (5-10) years and long range (20-40) years goals early in the program. Chicago's Mayor, Richard J. Daley, recognized this need and presented Chicago's eight goals for our Five Year Air Resource Management Program before the Special U.S. Senate Subcommittee on Air and Water Pollution which held hearings in Chicago January 31, 1964. That same year Mayor Daley encouraged the development of regional planning considerations and provided matching funds to the Northeastern Illinois Metropolitan Area Planning Commission with the Housing and Home Finance Agency, Urban Renewal Administration for a two-year $204,000, Air Resource Management Study, to define the Metropolitan Air Pollution Problem and propose alternate short and long term plans for implementation. This study with recommendations will be completed by the end of 1967.

ORGANIZATION DESIGN

The City of Chicago's Department of Air Pollution Control (Figure 1) is a line Department reporting directly to the Mayor and operating with three functional divisions-Technical Services, Field Services, and Engineering Services, with a corporate budget of $1,041,000 and employing a Grant Program of professional and technical persons. The public interest is represented by the Air Pollution Control Committee, the Technical Advisory Committee, and the Appeal Board. Other committees the Meteorological Advisory Committee, the Air Quality Standards Committee, and the Public Relations Advisory Committeeare used when special help is needed in these areas.

AIR MONITORING PROGRAM

The establishment of Air Quality Standards is an essential step in providing quantitative goals which a community wishes to attain. In many cases nondimensional values such as economics, aesthetics, visibility, and health may be more important than the exact numerical standards for a community and should be considered. The establishment of Emission Standards, both qualitative and quantitative, becomes crucial in the attainment of desired air quality goals. Additional information on meteorological parameters and enforcement capability must also be available to reach the desired air quality of the community.

Of particular interest to us concerning the ambient air quality has been Chicago's Air Monitoring Program, shown in Figure 2. This program consists of: 1. Telemetering Air Monitoring Network-reporting the wind directions, wind speed and sulfur dioxide levels on a continuous basis.

2. Suspended Particulate Monitoring Network-reporting the suspended particulates three days of each week on a 24-hour mean concentration basis from 20 stations.

3. Gas Monitoring Network-reporting the sulfur dioxide three days a week from 20 stations.

4. Dustfall Monitoring Network-accumulating on a monthly basis the large particulates in the area from the same 20 stations.

We are now engaged in two additional studies to determine local meteorology effects: the "Lake Breeze Study" which consists of eight stations located in a line from Meigs to Midway Airport; and recording wind direction and wind speed on a continuous basis throughout the year. This data will be used to determine duration and extent of stagnation periods, and Lake Breeze effects and will be used to design fuel use strategy.

The Telemetered Air Monitoring Network information is currently being coordinated with a health study to determine effects of stagnation periods and excess mortality. The TAM Network data is also being used to design, build, and test a diffusion model from major sources; the data will also be used to develop a "hot line strategy". In addition to the quantitative measurements an "Eye in the Sky Program" has been designed and is now operational, here we are using a closed circuit television unit with full 360 degree scanning capability and 10 to 1 automatic remote zoom control for pinpointing violators. This unit has proven very effective as a deterrent and enforcement tool. We plan to add three additional units during the next year.

The information obtained from these networks is being correlated with other studies and with our Emission Inventory and serves as a barometer of our enforcement activities. The City of Chicago has been fortunate in developing the first Telemetered Air Monitoring Network which can be put directly on line for a Real-Time systems application. By the end of the year we will have on-line Suspended Particulate, Oxides of Nitrogen, and Carbon Monoxide at expressway inter-changes. These pollutants will be measured on continuous bases.

To really make the Telemetered Air Monitoring effective it would be necessary to expand the network to include the six counties in Illinois plus the two in Indiana and air quality information must be accumulated over extended periods. The information obtained from such a system can be correlated directly with emissions from the ground and cause-effect relationships develop. The Department of Air Pollution Control has been working directly with the Commonwealth Edison Company to develop an "Operation Hot Line Program" whereby fuel patterns will be changed during periods of stagnation to relieve the air pollution. The Department has also selected the next one hundred largest emitters of sulfur dioxide and a strategy is being developed to best utilize existing gas capability to reduce pollution from these sources.

The missing link, however, is "Air Quality Standards", which have not been established at this time and the Public Health Service should make available Air Quality Standards as quickly as possible. When available these can then be simulated with existing and past records and a specific program can be designed to reach these standards over a desired time period.

EMISSION INVENTORY PROGRAM

The Chicago program defines sources, transport, and effects of air pollution. The third phase of our program is now underway; we will establish definite Emission Standards for each industrial and commercial application. levels can be simulated into a Real-Time Simulate Model.

Various

An emission inventory to define sources of emission was started in 1964. A total of 7,300 questionnaires were mailed to manufacturing establishments in the Chicago area employing five or more persons. The air pollution sources were followed up by plant visits by qualified engineers to prepare Flow Diagrams and evaluate potential pollution. The first step of this program was completed in 1965 and complete Fuel Burning Information is now available. Plants are being inspected on a regular basis and control programs for industry are being implemented. Additional studies for solid refuse disposal practices are now completed and new legislation is being simulated. Abatement programs, presented by the Steel Industry, the Grain Handlers and Processors, Electric Utility Industry, Foundries, Rendering Plants, and Asphalt Batching Plants are in various stages of completion. We are encouraged by the cooperation of our industrial community.

The Emission Inventory and the application of emission standards to operations are the most difficult elements of an Air Resource Management Program. Our Department has taken the initiative to provide a methodology that will lend itself to machine handling and can be up-graded on a continuous basis. Methods are being developed to corrolate pollution directly with production and gross national product estimates. Standard Land Use Coding Guide, Standard Industrial Classification Numbers, the Classification of Control Equipment and the Indexing of Emission by Chemical Identification Number have been incorporated into machine language that can be applied on a continuous basis. With the Permit System, plants are being inspected and up-graded on an annual basis to evaluate the effectiveness of our program. In addition a Clean Air Area Pilot Study is being designed for a project community to test methodology by which a Clean Air Program can be coordinated with Urban Renewal Program to clean up our city's air as it is being rebuilt.

ENFORCEMENT PROGRAM

The City of Chicago has been annually inspecting 40,000 Fuel Refuse Burning Units since 1958. During 1965 our Systems and Data Processing Group converted the Annual Inspection Procedure to machine handling whereby the field men use mark-sense inputs to develop an automatic Defect Follow up.

The Enforcement Program is further being strengthened with the "Eye in the Sky" Program whereby closed circuit televisions are mounted strategically throughout the city and monitored at a central station from which radio controlled cars will be dispatched to write up violations. This program will be coordinated directly with our Telemetered Air Monitoring Network and a continuous surveillance will be made of the city from sunrise to sunset. Such a program has proved extremely valuable as a determent, however, our experience indicates that many sources of pollution, fearful of being observed by the cameras, have switched to night operations and only effective law limiting emissions is really practical over a long period of time.

HEALTH EFFECTS STUDIES

In cooperation with our Department of Air Pollution Control, the Chicago Health Research Foundation was awarded a federal grant of $120,000 to study the Effect of Air Pollution on Health. The Technical Services Division is providing the aerometrics for this study. The principal investigator is Dr. Mark H. Lepper, Head of the Department of Preventive Medicine, College of Medicine, University of Illinois. Results of the study will be used to recommend legislation needed to establish Air Quality Standards.

The Tuberculosis Institute of Chicago and Cook County, and the National Emphyzema Foundation located in Chicago are now designing studies to use the existing telemetering air monitoring network data to correlate with respiratory ailments now present in the Chicago area.

It is hopeful that many of these studies and projects initiated by the City will be expanded to the entire Metropolitan Chicago Area. When completed, the information can be evaluated in terms of the desired Air Quality Goals, and provide a sound basis for immediate and long range program planning. Alternative abatement programs can then be proposed to obtain desired air quality, and at the same time accommodate steady population growth and industrial expansion.

LONG RANGE AIR USE PLAN

It is necessary to encourage the formulation of immediate, short-range, and long-range programs in the Chicago Air Shed. Immediate-one to two yearsplans are being made for new legislation, financial support, and public information by many of the villages, towns, cities, and counties in the Area.

Short-range-5 to 10 years-are already being made by others in defining and controlling sources of emissions.

Long-range plans-20 to 40 years-are being developed with the Northeastern Illinois Planning Commission and other planning groups, with regard to health, social, economic, and aesthetic aspects of the air pollution problem. More specifie plans for land-use, transportation facilities for automobiles and rapid transit. housing, and industry, parks, and recreation facilities are now being drafted. It is hopeful that the continued cooperation of the various public agencies will be helpful in defining and implementing an overall program.

With respect to the long-range planning expectations of an Air Resource Management Program, the following problems have become evident from our experience:

1. "The Information Base" must be standardized over the entire community if meaningful correlations are to be made with regard to Land Use Policy, Air Quality Standards or Objectives, and Emission Standards or Limitations. It is disappointing to work with city-counties, inter-counties, and city agencies to find that there is no suitable data that lends itself either for inter-relation or correlations with census track. Several systems are being designed by this Department to establish an "Information Data Base" that is applicable on a community and national basis.

2. The Time Factor of Program Action-If we consider air pollution as a continuous "Real Time" phenomena which is affected by uncontrollables such as meterology, energy demands, and transportation patterns, the evaluation of the Air Quality must be on a "continuous on-line" basis. Emissions leaving the ground must also be on a "continuous on-line" basis. With this capability it would be feasible to react to changing meteorology and energy demand; within a relatively short time and making reasonable adjustment to controllable parameters to avoid a disaster. It appears that yesterday's ambient air quality or emission information are of little value to avert today's crises. From the Planning and Information viewpoint additional emphasis must be made for putting the air pollution control parameters on a non-line real time basis. This Depart ment is hopeful of having some break-through at the next Annual Meeting.

THE PLANNING PROCESS AND AIR RESOURCE MANAGEMENT PROGRAMS

It is disappointing when searching through the literature to find that very little has been done with regard to understanding the by-products of Land Use of Population Density. One finds considerable work being done to accommodate high density living into relatively restricted areas, but the planners and architects have in many respects neglected to address themselves to the fundamental problems of air pollution, water pollution, and solid refuse disposal as related to expansion and renewal plans. In many re-development projects "low class pollution" is merely being converted to "high class pollution" and no significant change of Air Quality is being achieved with the planning process. The Air Resource Study, now being completed by the Northeastern Illinois Planning Commission, will be a first attempt to present a first step.