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Water Resource Associations of the Delaware River Basin

Jun '09

WRA- Celebrating 50 Years of Service (1959-2009)

The history of the Water Resources Association of the Delaware River Basin (WRA) is intertwined with that of the Delaware River Basin Commission (DRBC). Since the founding of DRBC in 1961, WRA and DRBC together have covered a great deal of ground, including some significant achievements, some work in progress, and some inevitable changes in direction. These notes and photos mark important moments in that record and significant events concerning the Delaware River Basin.

WRA was the brainchild of a group led by Walter Phillips, a Philadelphia civic leader with a deep sense of the value of regionalism. Their concept was to form an “umbrella” organization of organizations, a clearinghouse for ideas and for the advancement of a coordinated policy for the management of the water resources of the Basin. The organization’s Articles of Incorporation were approved in January 1958 by a decree of the Court of Common Pleas of Monroe County, Pennsylvania. The first By-laws were adopted in November 1958, and on May 22, 1959 more than 250 people came together for a first annual meeting and dinner at the Washington’s Crossing Inn. This event marked the establishment of the new WRA.

In 1960, Phillips wrote of the founding of WRA:
In order to develop communications and allegiances among the various groups interested in water, the Water Research Foundation² for the Delaware River Basin has incorporated another organization known as the Water Resources Association of the Delaware River Basin. Throughout the Basin many nonprofit organizations having one or another interest in water have elected one voting member each to this Association. There are one hundred and twenty-five voting members, with constituent groups. … Through special committees and constituent organizations of the Association, there is expected to be much public deliberation and expression relating to the Corps of Engineers plan and the governmental proposals set forth in the draft of the Compact.

Initially, to serve as a voting director of WRA, a person had to be the representative of an approved non-profit organization. Represented on the Board of WRA in those years were the League of Women Voters, Girl Scout and Boy Scout Councils, conservation organizations, fishermen’s clubs, garden clubs and many other civic and municipal organizations. Frank W. Dressler, the first Executive Director of WRA, issued the first edition of its newsletter, the “Delaware Basin Bulletin”, in the fall of 1959.

With the support of the public, mobilized by the efforts of WRA and many other organizations, the four Basin states and the United States enacted the Delaware River Basin Compact. DRBC officially came into existence on October 27, 1961, thirty days after President Kennedy signed Public Law 87-328 granting federal consent to the Compact.

While the process to establish DRBC was underway, WRA issued a booklet entitled “Too Much or Too Little: the Critical Water Problem in the Delaware River Basin.” The booklet was “an attempt to clarify the water needs of the entire Delaware River Basin and to outline possible ways in which the water resources of this area can be protected, now and in the future.”

For years, WRA held an annual conference each fall, often at Buck Hill Falls in the Poconos. Typically WRA’s conference immediately followed a DRBC public meeting, scheduled jointly to promote both events. The WRA conferences included committee meetings on a variety of subjects relating to water quality and quantity, and the development and conservation of water resources within the Basin. From early morning until late at night, DRBC staff and WRA members together would explore water issues spanning science, engineering and public policy.
The initial focus of DRBC and WRA was the Corps of Engineers' Delaware River Basin reservoir plan, first published in 1960 and then in 1962 as the “Delaware River Basin Report” (House Document 522). DRBC’s initial Comprehensive Plan and water resources program were based on the Corps’ plan, featuring the Tocks Island Lake Project (“Tocks Island”) on the main stem of the river, a multipurpose dam and reservoir. Flood control was a primary concern following hurricanes Connie and Diane in 1955.

The drought of the 1960s stressed the Basin ecosystem and water supplies. The largest storage capacity in the Basin was provided by the reservoirs built by New York City on the headwaters, In 1931 and again in 1954, litigation between the Basin states resulted in decrees of the United States Supreme Court directing that there be releases from the New York City reservoirs to maintain specified flow rates in the river. To conserve its municipal water supply, in 1964 New York City ceased making the releases from its Delaware Basin reservoirs required to meet the flow objective at Montague, NJ set by the Supreme Court in 1954. The cessation of releases from the reservoirs resulted in record low flows in the river, causing the “salt line” in the Delaware River Estuary to move upstream, threatening the City of Philadelphia’s municipal water supply intake at Torresdale and groundwater supplies in New Jersey. DRBC declared an emergency and, supported by WRA, continued to press for adequate reservoir storage in the Basin to prevent recurrence of this problem.

WRA initially supported the Corps’ and DRBC’s plans for Basin reservoir development, and Tocks Island in particular. However, diversion of federal dollars to fund the Vietnam War delayed the start of Tocks Island construction. As its estimated cost rose and its cost-benefit calculation began to approach break-even, Tocks Island’s early support weakened, and the project became the target of a growing environmental movement, exemplified by “Save the Delaware” and other groups. In 1967, Justice William O. Douglas led a group on a hike along the Appalachian Trail to Sunfish Pond, to draw attention to the natural pond that was to be inundated by the Kittatinny Mountain Pumped Storage Project, which would have utilized Tocks Island as its lower reservoir.

The long delay in starting Tocks Island eventually caused its demise. Ultimately, deauthorization in 1978 and establishment of the Delaware Water Gap National Recreation Area eliminated serious consideration of a large, main-stem reservoir for control of floods and droughts on the Delaware River. In the aftermath, DRBC focused on the development of rules, regulations and procedures to deal with drought. Water conservation policies entered DRBC’s project review process. WRA worked on each of these initiatives, providing technical and policy input to DRBC and information to its members and the broader public.

In 1965, Paul Felton succeeded Frank Dressler as WRA’s second Executive Director. Paul carried the WRA flag, organized our efforts and maintained our close ties to DRBC.

In May 1968, WRA issued “A WRA Statement of Policies, Principles and Goals for Water Resources Management in the Delaware River Basin.” The statement, though relatively brief, enumerated key concepts and priorities deemed essential for sound management of the Basin’s water resources. Among the policies listed, WRA stated its support for multiple use of the Basin’s water resources; constant attention to basic and applied research on water resource management; and feasible pollution controls to upgrade the Basin’s water quality. WRA reported that it had grown to include 600 organizations and individuals within the Basin.

Early DRBC regulation focused on traditional tasks and targets. Philadelphians and South Jersey residents recall river stench, the death of all life in the Delaware Estuary during summer droughts, and the effective blockage of fish migration due to pollution and the lack of oxygen. Cleaning up the main stem at first mainly addressed conventional pollutants from industry and municipal treatment plants. DRBC addressed the problem much more effectively than prior individual state action, successfully rolling back conventional pollutants and establishing water quality standards for the interstate river and Estuary. As a result, the Estuary now is populated by resident and migratory aquatic species, and American shad pass through on their upstream journey to spawning grounds as far north as the Upper Delaware. More visible, perhaps, is the quality commercial, cultural and residential development on the Philadelphia, Camden and Wilmington waterfronts.
With new programs under the Federal Water Pollution Control Act of 1972 generally subsumed within the “fishable swimmable” concept, and better planning models and science, DRBC progressed to modeling highly unconventional components of the water column present in parts per trillion, most recently setting standards based on total maximum daily load (“TMDL”). Permit writing and Superfund enforcement are primarily the job of other agencies, but the key standards often emanate from DRBC.

With Tocks Island out of the picture, DRBC developed water supplies as best it could, sponsoring the inclusion of water supply storage in Beltzville and Blue Marsh reservoirs. DRBC undertook and completed the “Level B” study in May, 1981 to identify alternatives to Tocks Island, and emphasized public participation in the study process. Bruce Stewart, Paul Felton’s successor beginning in 1980, played a major role in providing WRA input to the Level B Study.

In 1982, WRA’s Committee on Water Use Priorities prepared and submitted to DRBC, at the Commission’s request, “A Preliminary Assessment of Drought Impacts on Basin Industries.” The paper demonstrated that if industries were forced to curtail consumptive water use during droughts, there would be severe economic consequences and relatively minor benefits to river flow.

In 1978, DRBC had called upon the states and New York City to establish a plan to provide adequate water resources without reliance on Tocks Island. The result was the “Good Faith Agreement” of 1983. Among the recommendations of “Good Faith” were: river flow objectives for salinity control; plans for water conservation and reservoir operations during droughts; expansion of the Francis E. Walter Reservoir and the New York City’s Cannonsville Reservoir; construction of the Merrill Creek Reservoir; and enhanced releases from the New York City reservoirs for fisheries. Inclusion of water supply storage in F.E. Walter was a key recommendation of “Good Faith.” DRBC proposed to fund the project by charging “grandfathered” water users; this would have required Congress to repeal Section 15.1(b) of the Compact. Although WRA supported the expansion in concept, the organization opposed DRBC’s proposal to extend water use charges to only major surface water users. The project never gained popular support.

In 1984, DRBC approved construction of the Merrill Creek Reservoir by the electric utilities. The project was completed in 1988 and provides 16 billion gallons of storage to compensate for consumptive water use by electric generating facilities.

Over the years, most of the length of the Delaware River has been incorporated into the National Wild and Scenic Rivers System: in 1978, the Upper Delaware (Hancock to Port Jervis) and the Middle Delaware (Milford to Delaware Water Gap) were added; and the Lower Delaware (Delaware Water Gap to Trenton) was added in 2000. Despite some reservations about economic impacts, WRA supported these designations.

Throughout its history WRA committees have investigated various Basin issues such as the need for comprehensive planning. In 1996, in conjunction with an effort by DRBC to review its role and to determine how to increase its effectiveness, WRA prepared “A Vision for the Revitalization of the Delaware River Basin Commission.” The WRA paper lauded DRBC for many of its activities and initiatives, but suggested that the Commission was overstepping its appropriate role in water quality regulations vis-à-vis the federal government and the states. The WRA paper also urged DRBC to develop a new Comprehensive Plan.

On September, 29 1999, the Governors of the four Delaware River Basin states passed and signed a resolution challenging the Basin community to develop a unifying vision: a comprehensive Water Resources Plan for the Delaware River Basin. That Plan was developed through an extensive stakeholder input process and was signed by state and federal officials in September 2004. WRA and its members participated in crafting this landmark document. The document provides numerous recommendations including steps for flow management, flood protection, and stormwater management.

Since 1996, DRBC has been deprived of federal funding, resulting in cuts to water supply planning and implementation in virtually all areas except where it can tag-on to a related funded project. The federal government continues to hold a seat on the Commission. WRA has frequently written to key federal officials and legislators supporting full federal funding for DRBC.

Currently, DRBC functions in a transparent manner, employing several standing advisory committees on which stakeholders are represented. Particular committees in which WRA and its members have participated extensively are the Water Quality Advisory Committee, the Flood Advisory Committee (successor to the Flood Management Committee), and the Water Management Advisory Committee, which is currently chaired by Robert Molzahn, WRA’s President (an office renamed from the earlier title of Executive Director). Recent DRBC initiatives in which WRA has been active include those related to basin water transfers, water accountability by purveyors, sub-basin water budgets and the designation of the Lower Delaware as Special Protection Waters.

The role of WRA has changed as the role of DRBC has changed from providing water supply to resource conservation and enhancement. Our members come from industries, electric and water utilities, municipalities, non-profit organizations, professional organizations and university faculty, presenting a range of views and insights into the technological and governmental challenges that face DRBC. During our fifty year history we have served as a conduit for information and recommendations, both to and from DRBC, associated state and federal agencies, our members and the general public. WRA has hosted more than 100 informational conferences, seminars and meetings on issues important to the Basin. Our annual Recognition Dinner, now in its 27th year, has honored many outstanding individuals, organizations and businesses for leadership in sound water resources management.

Many thanks to Ken Myers and Jan Phillips for developing this short history of WRA for our 50th Anniversary Celebration. A complete reprint of the article can be obtained by calling or emailing the WRA office.

Photos were provided courtesy of the Delaware River Basin Commission and the Philadelphia Water Department.

1- Mr. Myers is the immediate Past Chair of WRA. He is Of Counsel to the law firm of High Swartz LLP in Norristown, Pennsylvania. Mr. Phillips is a member of the Executive Committee of WRA. He is an independent consultant in Allentown, Pennsylvania. The authors express their thanks to Preston Luitweiler, Robert Molzahn, Joanne Rufft, Alan Robinson and other members of the Association who provided material for this history.

2- The Water Research Foundation was funded by the Ford Foundation to promote the Syracuse University study that developed the new concept of a river basin commission formed and operated under a federal-state compact.

Looking Towards the Future: Dr. John L. Buzzi Memorial Scholarship Recipient Announced

Each year since 2004, the Water Resources Association of the Delaware River Basin (WRA) has awarded a $1000 one-time scholarship to a worthy high school senior who is attending a college or university with the intention of pursuing a career in a water resources related field. The scholarship is named after the late Dr. John L. Buzzi, a former Chairman of WRA and member of the Board of Directors who was a water resources engineering professional and a dedicated community leader within and outside the Delaware River Basin. This year the Board of Directors of WRA is pleased to announce that Charles Costanzo of Sicklerville, New Jersey has been chosen to receive the 2009 scholarship award.

Charlie is a senior at Timber Creek High School in Erial, New Jersey and will be attending Penn State University in State College, PA in the fall of 2009. Charlie’s designated major is Environmental Resource Management with a minor in Watershed and Water Resources. His career goal is to work in the field of water management, testing and analysis.

Besides his interests in the environment and his academic achievements Charlie served on the Student Council for all four years of high school and on the Class of 2009 Executive Committee for the last two years. He has also been a peer leader in the Transition Project which is a program to help incoming freshmen to learn how to make positive choices in their lives. He has also volunteered in multiple years to participate in the Bike Ride for the National MS Society, the March of Dimes Walk-A-Thon, and has helped make Thanksgiving baskets for needy families. He has also volunteered to help handicapped children to play tennis at the Special Olympics. Charlie was also on the high school varsity tennis team for four years. Since September 2007 Charlie has also worked part-time as a cashier for the local Shop Rite.

We congratulate Charlie on his scholarship and wish him the best in pursuing his degree at Penn State.