BY MR. PERCY (FOR HIMSELF, MR. MCCLELLAN, MR. RIBICOFF, MR. JAVITS, MR. SCOTT, MR. BYRD OF WEST VIRGINIA, MR. ALLEN, MR. BEALL, MR. BROCK, MR. CHILES, MR. GURNEY, MR. JACKSON, MR. MATHIAS, MR. MUSKIE, MR. ROTH, AND MR. SAXBE):

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP73B00296R000400090003-6
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 10
• Document Creation Date: November 17, 2016
• Document Release Date: August 18, 2000
• Sequence Number: 3
• Publication Date: June 18, 1971
• Content Type: OPEN

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dune 18, 1971 CONGRESSIONAL RECORD - SENATE
Increasing recognition of outboard motor
operation as a significant nationwide
source of pollution and improved technol-
ogy to correct the problem make such
standards both urgent and feasible.
:Studies investigating the effects and
the amount 'of fuel exhausted by two-
Cycle outboard marine engines began as
early as 1961, revealing that outboard
motor emissions damage water quality
by tainting fish flesh and by producing
from outboard motors is becoming a seri-
ous pollution problem in our lakes and
river systems.
The quantities of wastes involved in
outboard motor operation are shocking.
The exhaust to the water has been esti-
mated to range from less than 10 per-
cent to more than 50 percent of the fuel
originally put into a two-cycle outboard
engine. Within the 1 billion gallons of
outboard motor fuel sold annually, it has
been estimated that 100 to 160 million
gallons of fuel is wasted. By comparison,
the Torrey Canyon disaster resulted in
an oil spill of only 15 to 30 million gal-
lons. Furthermore, the waste of this un-
used outboard fuel costs boat owners be-
tween $50 to $100 million a year in out-
0f-pocket expense.
The source of the problem is relatively
simple and should have been corrected
long ago. Because of the design, the
engine parts of the two-cycle motor are
lubricated by mixing oil with gasoline.
During the intake of this fuel mixture
into the firing chamber, some of the fuel
vapor condenses and accumulates in the
crankcase, The unused fuel is evacuated
from the crankcase by valves which open
up and vent the fuel into the exhaust
housing and then into the water. Accord-
ing to a study made by, Stillwell & Clad-
ding, Inc. in 1969, the two-cycle engine's
open crankcase or "crankcase scaveng-
ing" design is "highly inefficient."
Significant steps have been taken re-
cently in the improvement of the two-
cycle outboard engine b1 the designing
of a drain free engine which would re-
cycle the unused fuel vented from the
crankcase back into the engine as fresh
fuel, and a recycling device that can be
attached onto two-cycle engines.
The recycling of fuel technique re-
portedly is already being manufactured
in all motor sizes and will be used in-
dustrywide in the 1972 models. How-
ever, in 1970, there were approximately
7,215,000 outbord motors already in use
in this country, and over 98 percent of
these are two-cycle motors. These older
outboard motors will continue to leave
massive fuel residues in our waters re-
gardless of the fuel recycling innova-
tion of the new two-cycle outboard
motors.
To cope with existing outboard motor
pollution, it is clear that fuel emission
standards set under this bill must cover
existing as well as future outboard
motors, requiring use of the best avail-
able technology to reduce or eliminate
the pollution in each case.
Tie bill that I am introducing will
accomplish these important objectives
through the following: First, direct the
Administrator of the Environmental Pro-
tection Agency to study the available
technology that could abate fuel emis-
sion from two-cycle engines and establish
standards for outboard motors accord-
ingly; second, make it unlawful for any-
one to operate a two-cycle outboard
motor on the navigable waters of the
United States after June 30, 1972, with-
out adhering to these standards; third,
establish a penalty of not more than $500
for any violation of these standards, and
fourth, allow the Secretary of the de-
partment in with the Coast Guard is
operating to enforce the provisions of
this bill by using law enforcement officers,
Federal agencies, or the States.
Mr. President, I ask unanimous con-
sent that immediately following my re-
marks there be inserted in the RECORD an
article from the Jack Anderson column
in the Washington Post dated May 15,
1971, which reports the disturbing find-
ings of the 1970-71 EPA study on the
amount of fuel deposited into our waters
by outboard motors. The article is en-
titled, "Motorboats: Super Polluters of
Lakes."
Also. I ask that the text of the bill be
printed following the article.
There being no objection, the article
and bill were ordered to be printed in the
RECORD, as follows:
MOTORBOATS: SUPER-POLLUTERS OF LAKES
(By Jack Anderson)
With the warming of the weather, the na-
tion's seven million outboard motors have
started to pump a seasonal stream of gunk
into America's once-sparkling waters.
This is the scientific, if upsetting, conclu-
sion of an unpublished Environmental Pro-
tection Agency study.
The study found that a single outboard
motor coughs, splutters and spits as much or-
ganic carbon pollution into the water in 24
hours as the sewerage from a neighborhood
of 400 persons.
Up to 30 per cent of the fuel used in out-
boards, according to the study, actually is
spewed into the water. Multiplying this by
the total consumption of outboard motors in
this country gives the staggering dimensions
of the pollution problem-more than 100
million gallons of oil and gas poured into
our streams and lakes and along our coast
lines.
Many bodies of water simply don't con-
tain enough bacteria to consume the gush
of oil and gas. The residue fouls the shore-
lines, kills fish, pollutes drinking water and
greases the skins of swimmers.
The study has been conducted quietly-
if that is the word for an outboard motor
test-by Dr. Williams Shuster, head of the
Bio-Environmental Engineering Division of
famed Rensselaer Polytechnic Institute.
He ran his tests with two engines, one 33
horsepower, the other 5 horsepower. His re-
search team used an 18-foot-long, four-foot-
deep swimming pool and took samples of the
water for measurements.
As a double check, they also put containers
on the fuel vents of the engines to collect
the waste.
The lowest amounts of dumpage came
from the high horse-power motor when
it was tuned and speeding. Then only 4 per
cent of the fuel leaked into the water. But
at low speed, the motor threw off 27 per cent
of its fuel. This increased to 30 per cent
when the motor was untuned.
Footnote: The federal government has now
given the Boating Industry Association a
$100,000 contract to study the effect of out-
board motors on the nation's water. The as-
sociation includes the manufacturers whose
S 9395
motors are causing the pollution. Thus, the
contract is a little like asking a tubercular
cook whether he might infect his customers.
Eight years ago, incidentally, the outboard
motor makers were offered designs which
would have largely prevented pollution.
S. 2096
Be it enacted by the Senate and House
of Representatives of the United States of
America in Congress assembled, That this
Act may be cited as the "Outboard Motor
Pollution Control Act of 1971".
SEC. 2. The Federal Water Pollution Con-
trol Act is amended by redesignating sections
21 through 27 as sections 22 through 28 re-
spectively, and by inserting after section 20
a new section as follows:
"REGULATION OF OUTBOARD MOTORS
"SEC. 21. (a) The Administrator of the En-
vironmental Protection Agency, after con-
sultation with the Secretary of the depart-
ment in which the Coast Guard is operat-
ing, shall promulgate, not later than June 30,
1972, regulations requiring that two-cycle
outboard motors used on vessels or any other
water craft on the navigable waters of the
United States be equipped or modified in
such a manner as will use the latest avail-
able technology to prevent such motors from
polluting such waters.
"(b) (1) After the effective date of such
regulations it shall be unlawful to operate a
two-cycle outboard motor on the navigable
waters of the United States in violation of
such regulations.
"(2) Any person who violates the provi-
sions of this subsection shall be liable to a
civil penalty of not more than $500 for each
violation. Each violation shall be a separate
offense. The Secretary of the department in
which the Coast Guard is operating may
assess any such penalty.
"(c) The provisions of this section and
regulations established thereunder shall be
enforced by the Secretary of the department
in which the Coast Guard is operating and
he may utilize by agreement, with or with-
out reimbursement, law enforcement officers
or other personnel and facilities of the Ad-
ministrator, other Federal agencies, or the
States in carrying out such provisions.
"(d) Anyone authorized by the Secretary
of the department in which the Coast Guard
is operating to enforce the provisions of this
section, may except as to public vessels or
watercraft, (1) board and inspect any vessel
or other watercraft upon the navigable
waters of the United States, and (2) execute
any warrant or other process issued by an
officer or court of competent jurisdiction."
By Mr. PERCY (for himself, Mr.
MCCLELLAN, Mr. RIBICOFF, Mr.
JAVITS, Mr. SCOTT, Mr. 13YRD of
West Virginia, Mr. ALLEN, Mr.
BEALL, Mr. BROCK, Mr. CLES,
Mr. GURNEY, Mr. JACKSON, Mr.
.MATHIAS, Mr. MUSHIE, Mr. ROTH,
and Mr. SAxBE) :
S. 2097. A bill to establish a Special
Action Office for Drug Abuse Prevention
to concentrate the resources of the Na-
tion in a Crusade Against Drug Abuse.
Referred to the Committee on Govern-
ment Operations.
SPECIAL ACTION OFFICE FOR DRUG ABUSE
PREVENTION ACT
Mr. PERCY. Mr. President, it is with
mixed emotions that I appear in the
Chamber today. I am, of course, highly
pleased to announce a bold, new White
House initiative to deal with the agoniz-
ing problem of drug abuse in this coun-
try. But to even allude to this initiative
one must face up to the oppressive facts
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S 939 CONGRESSIONAL. RECORD - SENATE
that establish the depth and dimensions
of this disease that is infecting our so-
ciety, and especially our youth.
President Nixon, in his message yes-
terday to Congress, echoed that thought.
"We must now candidly recognize," he
said-
That the deliberate procedures embodied
in present efforts to control drug abuse are
not sufficient in themselves. The problem
has assumed the dimensions of a national
emergency.
Noting that "drug addiction destroys
lives, destroys families, and destroys
communities," the President went on to
Despite the magnitude of the problem,
despite our very limited success in meeting
it, and despite the common recognition of
both circumstances, we nevertheless have
thus far failed to develop a concerted effort
to find a better solution to this increasingly
grave threat. At present, there are nine
Federal agencies involved in one fashion or
another with the problem of drug addiction.
There are anti-drug abuse efforts In Federal
programs ranging from vocational rehabilita-
tion to highway safety. In this manner our
efforts have been fragmented through com-
peting priorities, lack of communication,
multiple authority, and limited and disper-
sed resources. The magnitude and the sever-
ity of the present threat will no longer per-
mit this piecemeal and bureaucratically-
dispersed effort at drug control. If we can-
not destroy the drug menace in America,
then it will surely in time destroy us. I am
not prepared to accept this alternative.
Thererore,T am, transmitting legislation to
the Congress to consolidate at the highest
level a full-scale attack on the problem of
drug abuse in America.
Calling for a statutory Special Action
Office of Drug Abuse Prevention in the
White House, the President has asked for
$155 million in new funds for combating
drug abuse, bringing to $371 million the
total amount to be spent for this purpose.
Of the new funds, $105 million is to be
used solely for treatment and rehabilita-
tion of addicts. Other requests include:
$14 million to enable the Veterans Ad-
ministration to expand its five drug ad-
diction clinics to 30; $10 million for edu-
cation and training in use of dangerous
drugs; $2 million for research on drug
detection techniques; $7.5 million for in-
tensified investigation of large-scale
traffickers and $18-million for customs
inspections and pursuit of smugglers; $1
million to 'help other nations train en=
forcement officers; and $2 million for
research on herbicides to destroy nar-
cotics-producing plants.
The President said he would' ask Con-
gress to permit drug control assistance to
Communist countries that are now in-
eligible for aid.
EXTENT OF THE PROBLEM
The scope of the addiction problem is
chilling. The financial costs alone exceed
$2 billion each year, but are inestimable
in terms of the human costs-the per-
sonal suffering and mental anguish-
that the American society is forced to
bear:
HEROIN
Heroin addiction can be found in
cities, in suburban and rural areas. In
recent testimony before the Senate Sub-
committee on Alcoholism and Narcotics,
Dr. Bertram S. Brown, Director of the
National Institute of Mental Health,
said:
Affluent suburbs often thought to be free
of heroin associated with ghettos are sud-
denly aware of heroin use among their
youth.
Since possession and traffic in heroin is
illegal, it is difficult to know precisely the
number of heroin addicts in the country.
NIMH estimates the total at 250,000. The
House Select Committee on Crime puts
the figure at 200,000.
About half of the addicts in the coun-
try reside in New York State. In New
York City, narcotics addiction is the
greatest single cause of death of ado-
lescents and young adults between the
ages of 15 and 35. In the past 8 years,
New York City has lost more lives to
drugs than the entire State of New York
has lost to the war in Vietnam.
Heroin addicts need from $20 to $150
per day to support their habit. If New
York City's approximately 100,000 ad-
dicts spend an average of $35 per day on
heroin, the total exceeds $3.5 million per
day or $1.3 billion per year. Most turn
to crime to get the money to pay for the
heroin, since they ordinarily are unable
to earn enough to pay for it. One survey
in New York City showed that only 2
percent supported their habit through
gainful employment; 98 percent were in-
volved in criminal activity. If addicts
steel goods, they must steal five times the
cost of their habit, since stolen mer-
chandise brings only 20 percent of its
value when fenced. On a yearly basis,
an addict must steal $90,000 worth of
merchandise.
According to a recent, authoritative
estimate from the provost marshal's
office in Saigon, there are between 30,000
and 40,000 American servicemen in Viet-
narn who are heroin users-close to 15
percent of the troops stationed there.
One study showed that the average age
of the addicts included in the survey
was only 20.5 years and the length of
time addicted 5 months. With plenty of
cheap heroin available in Vietnam, the
servicemen have no trouble supporting
their habit. But when they return to this
country, their habit becomes more ex-
pensive-and most will have to steal to
pay for it. They are sentencing them-
selves to lives of crime.
. Mr. President, at this point I would
like to recall my own personal experience
in Vietnam when in Danang I met with
the son of our distinguished colleague
from Virginia (Mr. BYRD). Harry Byrd,
III, was a marine stationed up in the
Danang area. When I asked about his
work he indicated he had supervisory
responsibilities in a brig. I asked him
what the most frequent charge brought
against GI's in Vietnam was. at that
time. This was of course several years
ago. He indicated that even at that early
time most occupants of the brig were
there for drug usage and drug abuse. He
indicated that because of the boredom of
GI's and the fact that many were pro-
testing against the war and resented
being there and fighting a war in which
they did not believe, drug addiction, and
June 18, 1971
particularly, at that time, marihuana
smoking was possible because the enemy
itself saw to it that it was widely and
freely distributed. Trucks would come
through villages and when they would see
a group of GI's, dump off large quantities
of marihuana. And no one knows how
many of the harder drugs might have
been made similarly accessible.
This problem that I heard about first-
hand several years ago in Vietnam has
grown until it has now reached the crisis
stage.
Mr. RIBICOFF. Mr. President, will the
Senator yield?
Mr. PERCY. I yield.
Mr. RIBICOFF. Mr. President, I am
pleased to be a cosponsor of this legisla-
tion with the distinguished Senator from
Illinois. I am confident the legislation
will receive prompt hearings by the
Committee on Government Operations.
The problem of drug abuse in this
country is expanding and now wastes the
lives of. hundreds of thousands of Amer-
icans every year, many of them poten-
tially our most promising young people.
The recent disclosures regarding addic-
tion in our Armed Forces in South Viet-
nam only highlight the pervasive impact
drugs have in our society.
The need for a concerted attack on
this problem is obvious. Until now, how-
ever, the Federal Government's drug
abuse prevention and control programs
have been fragmented and uncoordi-
nated. Responsibility was unfocused. As
late as last year coordination was being
handled by an ad hoc committee chaired
by a special assistant in the White House
with numerous other responsibilities.
Under the President's bill, 10 programs
from more than five departments and
agencies will be supervised by a Presi-
dential appointee working full time on
this matter in the White House. I hope
the creation of a new White House office
will lead to greater coordination and bet-
ter results.
An additional $155 million is to be
provided along with the powers needed to
oversee Federal drug abuse efforts effec-
tively. The Director of the new White
House office will have the authority to
prescribe policies, prepare budgets, and
set priorities.
I am pleased to cosponsor this legisla-
tion for the purposes of introduction and
am confident that it will receive prompt
and thorough hearings by the Govern-
ment Operations Committee. Details of
this legislation aside, no one can dis-
pute the great need that led to its for-
mulation and introduction.
We must be careful not to deceive our-
selves, however. Enforcement needs to be
improved. Education and rehabilitation
are critical. But ultimately we must ad-
dress ourselves to the ills of our society
if we are to remove the underlying causes
of much of the drug addiction in this
country.
Why do so many feel the necessity of
the drug habit? We needto know, so we
can eliminate the causes that lead to
drug involvement.
Mr. PERCY. Mr. President, I should
like to thank my distinguished colleague,
who is chairman of the Government Op-
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 June 18,41p971 oved For Release
erations Subcommittee on Executive Re- Congress on "Marihuana and Health"
organization. I would like to express my from the Secretary of Health, Education,
deep appreciation for his having become and Welfare determined that by the end
the principal cosponsor of this legisla- of 1970, one college student in seven was
tion. In fact, I am delighted at the in- using marihuana weekly or even more
terest and support each of the other co- often. In a substantial number of colleges
.sponsors of this bill has expressed. Also, and high schools, a majority of students
I should like at the same time to express used marihuana.
my appreciation to Senator JAVITS of New Marihuana is at the center of great
York, another cosponsor of the legisla- national debate. For example, this week
tion and who, together with Senator witnesses testifying in San Francisco be-
RIBICOFF, will be handling some of the fore the National Commission on Mari-
major, substantive matters in this area huana and Drug Abuse contradicted each
in the Senate Committee on Labor and other on such questions as whether mari-
Public Welfare, huana usage leads to experimentation
This matter, we would trust, would be with harder drugs; whether marihuana
referred to the Government Operations produces a toxic reaction in the central
Committee, because its essential purpose nervous system of adolescents; and
is to set up a Special Action Office for whether marihuana should be legalized.
Drug Abuse Prevention, which falls with- We appear to know that marihuana
in the jurisdiction of the Government is not physically addictive-though it
Operations Committee. By having over- may be psychologically habituating. We
lapping jurisdiction in the Government also know that it leads to an alteration of
Operations Committee and the Labor and time and space perception, a sense of
Public Welfare Committee with ranking of euphoria, a loss of inhibition, exag-
members in the persons of Senator RIaI- gerated laughter and attention loss. And
coir and Senator JAVITS who serve on we know that it has relatively minor
both committees assume very active physiological effects. But, beyond this, we
leadership roles in both. I think we have know little in spite of the HEW report
a coordinated effort which will insure and the spate of opinions that bombard
early hearings and prompt action by the us regularly. We await next year's report
Senate in this most .urgent area. of the National Commission on Mari-
I again want to express my deep ap- huana and Drug Abuse before forming
preciation to our esteemed colleague. a firm judgment on many of the issues
AMPHETAMINES concerning marihuana.
In 1969, over 8 billion amphetamine A NEW OFFENSIVE
pills were produced and consumed in To counter the vicious cycle of addic-
the United States-enough for 40 doses tion, the President has proposed a "new
of amphetamines for every man, wom- all-out offensive," dealing with the
an, and child in the United States. Ac- sources of supply at home and abroad
cording to the National Institute of and proposing the establishment of a
Mental Health, the total legitimate med- central authority within the Executive
ical need can be measured in the thou- Office of the President to have overall
sands. NIMH puts the number of per- responsibility for all major Federal pro-
sons using oral amphetamines without grams of drug abuse prevention, educa-
a medical prescription at about 5 mil- tion, treatment, rehabilitation, training,
lion. Intravenous, use of amphetamines and research programs. The authority
or methamphetamine is limited to about will be designated at the Special Action
100,000 users. These "speed freaks" face Office of Drug Abuse Prevention, It will
an emergency when their drugs are with- be headed by a Director accountable to
drawn: an abrupt "crash." the President.
BARBITURATES Because of the emergency nature of
In 1969 over 4 billion barbiturate cap- this problem, the President has estab-
sules were produced and consumed in lished this Office by Executive order, ef-
this country-again, far more than fective yesterday, pending passage by the
,iwould be needed for legitimate medical Congress of specific enabling legislation
reasons. NIMH. estimates that 2 million which I am introducing today.
people take this drug regularly without I am deeply pleased to see that the
,medical need. Barbiturates often are
used in suicide attempts; accidental ov-
erdoses in combination with alcohol con-
stitute another hazard. Barbiturates di-
minish the physical and mental re-
sponses to such an extent that users are
endangering the general public when
performing such tasks as driving a car.
HALLUCINOGENS
Use of hallucinogens, such as LSD,
which can cause birth defects, appears
to be leveling off. Repetitive use of LTD
now is found among a relatively small
number of individuals, although experi-
mentation by young drug abusers un-
iortunately continues to flourish.
MARIHUANA
According to NIMH, marihuana usage
is increasing rapidly. An estimated 10
$o 12 million Americans have used the
drug at least once. The recent report to
S 9397
To the extent that rehabilitation is re-
quired for Vietnam veterans, the Presi-
dent:
Ordered immediate establishment of
testing procedures and initial rehabili-
tation efforts to be taken in Vietnam.
Ordered the Department of Defense to
provide rehabilitation services and the
rehabilitation of all returning discharged
veterans who desire this help.
Announced the request of legislation to
permit the military services to retain for
treatment narcotic addicts due for dis-
charge.
Described the authority of the Direc-
tor of the Special Action Office to refer
patients to private and Veterans' Admin-
istration hospitals as circumstances
require.
Described authority to be sought by
the Special Action Office to make VA fa-
cilities available for drug rehabilitation
to all former servicemen regardless of
the nature of their discharge.
Asked Congress to increase the present
VA budget by $14 million to permit im-
mediate initiation of the program.
The President also announced a re-
quest to Congress to amend the Narcotic
Addict Rehabilitation Act of 1966 to
broaden the authority for use of metho-
done maintenance programs under rigid
standards.
He also instructed Dr. Jaffe to review
immediately all Federal laws pertaining
to rehabilitation and announces he will
submit any legislation needed to expedite
the Federal rehabilitative role and cor-
rect overlapping authorities.
EDUCATION
An additional $10 million to increase
and improve education and training in
the field of dangerous drugs.
ENFORCEMENT
To expedite the prosecution of nar-
cotics cases, legislation will be sought
permitting the Government to utilize in-
formation obtained by foreign police and
also will request legislation to permit a
chemist to submit written findings of his
analysis in drug cases in order to speed
the process of criminal justice.
Dangerous drugs and narcotics en-
forcement are to be stepped up with re-
quests to Congress for; $2 million for
research and development of equipment
and detection techniques; authorization
d f
di
f
2
un
ng o
3
5 added positions in
President has announced the appoint- an
ment of Dr. Jerome H. Jaffe, director of the Bureau of Narcotics and Dangerous
the drug abuse control program of the Drugs; supplemental appropriations of
Depart-
State of Illinois, to head this new office $25.6 million for the Treasury Depart-
in the temporary capacity of special con- ment-about $7.5 million for intensified
sultant to the President for narcotics investigation of large-scale traffickers;
and dangerous drugs. approximately $18 million for Bureau of
Dr. Jaffe, dangerous
has been a leader in Customs investigation and inspection ef-
37,
developing innovative techniques for the forts and for the pursuit and apprehen-
: