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Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

BUILDING A FOUNDATION FOR SOUND ENVIRONMENTAL DECISIONS

Committee on Research Opportunities and Priorities for EPA

Board on Environmental Studies and Toxicology

Water Science and Technology Board

Commission on Geosciences, Environment, and Resources

National Research Council

National Academy Press
Washington, D.C. 1997

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

NATIONAL ACADEMY PRESS
2101 Constitution Avenue, N.W. Washington, DC 20418

NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competencies and with regard for appropriate balance.

This report has been reviewed by a group other than the authors according to procedures approved by a Report Review Committee consisting of members of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine.

This study was supported by Contract Number 68W40044 between the National Academy of Sciences and the U.S. Environmental Protection Agency. Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the view of the organizations or agencies that provided support for this project.

Library of Congress Catalog Card No. 97-67451

International Standard Book No. 0-309-05795-7

Additional copies of this report are available from:
National Academy Press
2101 Constitution Avenue, N.W. Box 285 Washington, D.C. 20055 800-624-6242 202-334-3313 (in the Washington Metropolitan Area) http://www.nap.edu

Cover art created by Carrie Mallory. Ms. Mallory received her Bachelor of Fine Arts Degree from the Cooper Union for the Advancement of Science and Art. She takes many of her themes from the natural world and she has provided covers for many National Research Council reports.

Copyright 1997 by the National Academy of Sciences. All rights reserved.

Printed in the United States of America

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

COMMITTEE ON RESEARCH OPPORTUNITIES AND PRIORITIES FOR THE ENVIRONMENTAL PROTECTION AGENCY

RAYMOND C. LOEHR, Chair,

The University of Texas, Austin

SANDRA O. ARCHIBALD,

University of Minnesota, Minneapolis

JOHN I. BRAUMAN,

Stanford University, California

JOHN D. BREDEHOEFT,

The Hydrodynamics Group, La Honda, California

GEORGE P. DALTON,

The Procter & Gamble Co., Cincinnati, Ohio

KENNETH L. DEMERJIAN,

State University of New York-Albany

NINA V. FEDOROFF,

The Pennsylvania State University, University Park

ROLF HARTUNG,

University of Michigan, Ann Arbor

JAMES F. HAYS,

National Science Foundation, (retired), Arlington, Virginia

CHARLES E. KOLB,

Aerodyne Research, Inc., Billerica, Massachusetts

JUDITH McDOWELL,

Woods Hole Oceanographic Institution, Massachusetts

JUDITH L. MEYER,

University of Georgia, Athens

CHARLES R. O'MELIA,

The Johns Hopkins University, Baltimore, Maryland

*MICHAEL J. WILEY,

University of Michigan, Ann Arbor

GARY M. WILLIAMS,

American Health Foundation, Valhalla, New York

ROY L. WOLFE,

Metropolitan Water District of Southern California, Los Angeles

LILY YOUNG,

Rutgers University, New Brunswick, New Jersey

THOMAS W. ZOSEL,

3M Company, St. Paul, Minnesota

Staff

MORGAN GOPNIK, Study Director

SHEILA DAVID, Senior Staff Officer

DAVID POLICANSKY, Senior Staff Officer (until 10/96)

ADRIENNE S. DAVIS, Senior Project Assistant (until 3/97)

STEPHANIE VANN, Project Assistant (as of 2/97)

ANGELA BRUBAKER, Research Assistant

ANNE McCASLAND-PEXTON, Intern

*  

Michael J. Wiley resigned on 10/15/96 due to scheduling conflicts.

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

BOARD ON ENVIRONMENTAL STUDIES AND TOXICOLOGY

PAUL G. RISSER, Chair,

Oregon State University, Corvallis

MAY R. BERENBAUM,

University of Illinois, Urbana

EULA BINGHAM,

University of Cincinnati, Cincinnati, Ohio

PAUL BUSCH,

Malcolm Pirnie, Inc., White Plains, New York

EDWIN H. CLARK II,

Clean Sites, Inc., Alexandria, Virginia

ELLIS COWLING,

North Carolina State University, Raleigh

GEORGE P. DASTON,

The Procter & Gamble Co., Cincinnati, Ohio

PETER L. DEFUR,

Virginia Commonwealth University, Richmond

DAVID L. EATON,

University of Washington, Seattle

DIANA FRECKMAN,

Colorado State University, Ft. Collins

ROBERT A. FROSCH,

Harvard University, Cambridge, Massachusetts

DANIEL KREWSKI,

Health & Welfare Canada, Ottawa, Ontario

RAYMOND C. LOEHR,

The University of Texas, Austin

WARREN MUIR,

Hampshire Research Institute, Alexandria, Virginia

GORDON ORIANS,

University of Washington, Seattle

GEOFFREY PLACE,

The Procter & Gamble, Co., (retired), South Carolina

BURTON H. SINGER,

Princeton University, New Jersey

MARGARET STRAND,

Bayh, Connaughton and Malone, Washington, D.C.

BAILUS WALKER, JR.,

Howard University, Washington, D.C.

GERALD N. WOGAN,

Massachusetts Institute of Technology, Cambridge

TERRY F. YOSIE,

Ruder Finn, Washington, D.C.

Staff

JAMES J. REISA, Director

DAVID J. POLICANSKY, Associate Director and Program Director for

Natural Resources and Applied Ecology

CAROL A. MACZKA, Program Director for

Toxicology and Risk Assessment

LEE R. PAULSON, Program Director for

Information Systems and Statistics

RAYMOND A. WASSEL, Program Director for

Environmental Sciences and Engineering

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

WATER SCIENCE AND TECHNOLOGY BOARD

DAVID L. FREYBERG, Chair,

Stanford University, California

BRUCE E. RITTMANN, Vice Chair,

Northwestern University, Evanston, Illinois

LINDA ABRIOLA,

University of Michigan, Ann Arbor

JOHN BRISCOE,

The World Bank, Washington, D.C.

WILLIAM M. EICHBAUM,

The World Wildlife Fund, Washington, D.C.

WILFORD R. GARDNER,

University of California, (retired), Berkeley

EVILLE GORHAM,

University of Minnesota, St. Paul

THOMAS M. HELLMAN,

Bristol-Myers Squibb Company, New York

CHARLES D. D. HOWARD,

Charles Howard and Associates, Ltd., Victoria, British Columbia, Canada

CAROL A. JOHNSTON,

University of Minnesota, Duluth

WILLIAM M. LEWIS, JR.,

University of Colorado, Boulder

JOHN W. MORRIS,

J. W. Morris, Limited, Arlington, Virginia

CHARLES R. O'MELIA,

The Johns Hopkins University, Baltimore, Maryland

REBECCA T. PARKIN,

American Public Health Association, Washington, D.C.

IGNACIO RODRIGUEZ-ITURBE,

Texas A&M University, College Station

FRANK W. SCHWARTZ,

Ohio State University, Columbus

HENRY VAUX, JR.,

University of California, Riverside

Staff

STEPHEN D. PARKER, Director

SHEILA D. DAVID, Senior Staff Officer

CHRIS ELFRING, Senior Staff Officer

JACQUELINE A. MACDONALD, Senior Staff Officer

GARY D. KRAUSS, Staff Officer

ANGELA F. BRUBAKER, Research Assistant

JEANNE AQUILINO, Administrative Associate

ANITA A. HALL, Administrative Assistant

ELLEN DE GUZMAN, Senior Project Assistant

STEPHANIE VANN, Senior Project Assistant

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

COMMISSION ON GEOSCIENCES, ENVIRONMENT, AND RESOURCES

GEORGE M. HORNBERGER, Chair,

University of Virginia, Charlottesville

PATRICK R. ATKINS,

Aluminum Company of America, Pittsburgh, Pennsylvania

JAMES P. BRUCE,

Canadian Climate Program Board, Ottawa, Ontario, Canada

WILLIAM L. FISHER,

The University of Texas, Austin

JERRY F. FRANKLIN,

University of Washington, Seattle

THOMAS E. GRAEDEL,

Yale University, New Haven, Connecticut

DEBRA KNOPMAN,

Progressive Foundation, Washington, D.C.

KAI N. LEE,

Williams College, Williamstown, Massachusetts.

PERRY L. McCARTY,

Stanford University, California

JUDITH E. MCDOWELL,

Woods Hole Oceanographic Institution, Massachusetts

RICHARD A. MESERVE,

Covington & Burling, Washington, D.C.

S. GEORGE PHILANDER,

Princeton University, New Jersey

RAYMOND A. PRICE,

Queen's University at Kingston, Ontario, Canada

THOMAS C. SCHELLING,

University of Maryland, College Park

ELLEN SILBERGELD,

University of Maryland Medical School, Baltimore

VICTORIA J. TSCHINKEL,

Landers and Parsons, Tallahassee, Florida

E-AN ZEN,

University of Maryland, College Park

Staff

STEPHEN RATTIEN, Executive Director

STEPHEN D. PARKER, Associate Executive Director

MORGAN GOPNIK, Assistant Executive Director

GREGORY SYMMES, Reports Officer

JAMES MALLORY, Administrative Officer

SANDI FITZPATRICK, Administrative Associate

MARQUITA SMITH, Administrative Assistant/Technology Analyst

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce M. Alberts is president of the National Academy of Sciences.

The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. William A. Wulf is president of the National Academy of Engineering.

The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute of Medicine.

The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. William A. Wulf are chairman and vice chairman, respectively, of the National Research Council.

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Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
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Preface

As we approach the twenty-first century, the task of protecting human health and the environment is becoming ever more complex. Growing worldwide population, industrial growth, and related pressures on the environment, combined with a realization of the tremendous complexity of environmental systems, present us with new challenges. Identification of possible environmental problems early in their evolution, continued development of knowledge needed to better understand the severity and impact of these problems, and implementation of appropriate steps based on sound science to avoid or prevent the important problems and greatest risks are essential for the stewardship of the planet. The U.S. Environmental Protection Agency (EPA), as the lead environmental protection agency in the United States, must have the scientific capacity to address both current and future environmental problems. To maintain and enhance this capacity, the EPA, in addition to carrying out its mandate to implement environmental laws, must maintain a strong research program.

In the fall of 1995, the EPA Office of Research and Development (ORD) requested that the National Research Council (NRC) advise the agency on research opportunities and priorities that could help EPA address current and future environmental problems. To accomplish this task, the NRC, through its Board on Environmental Studies and Toxicology and its Water Science and Technology Board, established a multidisciplinary committee, the Committee on Research Opportunities and Priorities for EPA (See Appendix 3 for biographical sketches of committee members.). The committee's members collectively possess decades of experience in governmental and nongovernmental organizations working on research and solutions related to important environmental problems. The NRC committee gathered relevant information for this report by meeting with and interviewing individuals from many organizations and with diverse backgrounds and by reviewing previous reports that have addressed similar topics. In addition, the committee drew upon the broad knowledge and experience of its members.

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

This report is intended to help shape a new framework for research conducted and sponsored by EPA. As such it does not contain a detailed assessment of current activities, management policies, or budgets. Nor does it provide prescriptive guidance in respect to implementation of its recommendations. Rather, it is a broad, forward-looking document intended to assist EPA managers responsible for strategic planning for the Office of Research and Development in laying out new directions and policies for the Agency. It should also be of value to Congress and the White House as they consider appropriate roles and directions for EPA.

Another NRC committee, the Committee on Research and Peer Review at EPA, has been working in parallel with this committee. That committee, whose report will be released later in 1997, is exploring questions concerning EPA's research management practices. Its findings should serve as a useful complement to the research framework presented in this report.

The committee hopes that this report will help EPA and the nation add to the building blocks of scientific knowledge needed to better protect human health and the environment. Our aim is to ensure that the EPA develops a permanent mechanism for conducting the research necessary for better environmental stewardship. At the same time, the EPA must work cooperatively with others to take advantage of important research being carried out in other organizations.

Because EPA's mandate is so broad, and its research correspondingly wide-ranging, no single discipline or research topic could be covered fully in this report. The many shaded boxes serve as illustrative examples of valuable research areas. Many other important topics could also serve to illustrate the themes laid out in this document.

The ideas presented in this report represent the breadth of knowledge and creativity of the committee members. Committee discussions were wide-ranging and thought provoking. It was a pleasure serving as chair and being a member of such a capable, hard-working, and distinguished group of individuals.

The committee is very grateful for the assistance and dedication of the NRC staff who aided the committee and helped prepare this report. In particular, we wish to recognize Morgan Gopnik, study director, whose expertise added to the discussions and whose hard work and skill in organizing, integrating, and polishing the various chapters are responsible for the readability of the report. In addition, we would like to recognize and thank Sheila David for her hard work and assistance in helping prepare and finalize the committee report. In addition, we would like to thank Adrienne Davis for arranging the committee's meetings and to thank Stephanie Vann for bringing the manuscript to completion. Finally, we wish to recognize the staff members of EPA's ORD for their dialogues with the committee and for their continued efforts to manage a high-quality research program in the face of difficult budget constraints.

RAYMOND C. LOEHR

Chair

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
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Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
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List of Boxes, Figures, and Tables

BOXES

1-1

 

Selenium Contamination at Kesterson National Wildlife Refuge: Research Helps Solve Identified Environmental Problem

 

7

2-1

 

The Three Components of Core Environmental Research

 

18

2-2

 

Soil and Ground Water Contamination: Limited Knowledge of Environmental processes Slowed Progress

 

20

2-3

 

Understanding Humic Substances: Core Research Can Be Used to Address a Variety of Environmental Problems

 

21

2-4

 

The Impact of Airborne Particulates on Human Health: Core Research Needed to Identify Cause-and-Effect Relationships

 

22

2-5

 

Measuring Large-Scale Air Pollution: Application of New Tools

 

24

2-6

 

Applying Biological Microchip Technology to Environmental Assessment, Analysis, and Remediation Problems

 

26

2-7

 

Sub-Microgram Analysis Techniques for Geochemical and Geophysical Characterization

 

27

2-8

 

Human Variability in Toxic Response: Incomplete Understanding of Biological Processes Hinders Accurate Risk Assessments

 

28

2-9

 

Risk Characterization and Communication: Developing Better Methods to Apply to Many Environmental Problems

 

30

2-10

 

The Challenges of Long-Term Ecosystem Monitoring

 

34

3-1

 

Nutrient Contamination of Coastal Waters: Attacking a Difficult Problem

 

38

3-2

 

Effectiveness of Control Strategies for Tropospheric Ozone

 

42

3-3

 

Drinking Water Disinfection

 

44

3-4

 

Criteria for Selecting Among Identified Environmental Issues

 

45

3-5

 

Environmental Endocrine Modulators: Reducing Uncertainties

 

47

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

4-1

 

Global Climate Change: A Large-Scale, Complex Problem Requires an Interdisciplinary, Multi-Agency Approach

 

51

4-2

 

Long-Term Studies Lead to Understanding of Complex Interactions

 

56

FIGURES

1-1

 

Chlorofluorocarbons (CFCs) and ozone depletion: Advances in science and policy through 1996

 

8

2-1

 

Accurate, sustained monitoring efforts at the Mauna Loa Observatory in Hawaii demonstrated rising levels of carbon dioxide in the atmosphere— an important piece of the climate change puzzle

 

31

2-2

 

Elements of a successful environmental monitoring program

 

32

3-1

 

Identification and mitigation of environmental problems is a continual process

 

39

3-2

 

The growth of industry and agriculture in the past 200 years has promoted at least six identifiable components of global environmental change

 

40

3-3

 

The risk assessment process

 

46

4-1

 

Some of the many partners in the environmental research endeavor

 

50

5-1

 

A framework for environmental research at EPA

 

61

TABLES

2-1

 

Identified Environmental Issues

 

14

2-2

 

Key Processes Underlying Environmental Systems

 

19

2-3

 

Environmental Research and Management Tools

 

25

5-1

 

Recommended Actions for EPA

 

64

Suggested Citation:"Front Matter." National Research Council. 1997. Building a Foundation for Sound Environmental Decisions. Washington, DC: The National Academies Press. doi: 10.17226/5756.
×

BUILDING A FOUNDATION FOR SOUND ENVIRONMENTAL DECISIONS

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Over the past decades, environmental problems have attracted enormous attention and public concern. Many actions have been taken by the U.S. Environmental Protection Agency and others to protect human health and ecosystems from particular threats. Despite some successes, many problems remain unsolved and new ones are emerging. Increasing population and related pressures, combined with a realization of the interconnectedness and complexity of environmental systems, present new challenges to policymakers and regulators.

Scientific research has played, and will continue to play, an essential part in solving environmental problems. Decisions based on incorrect or incomplete understanding of environmental systems will not achieve the greatest reduction of risk at the lowest cost.

This volume describes a framework for acquiring the knowledge needed both to solve current recognized problems and to be prepared for the kinds of problems likely to emerge in the future. Many case examples are included to illustrate why some environmental control strategies have succeeded where others have fallen short and how we can do better in the future.

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