THE FEDERAL DREDGE PERMITTING PROCESS AND ITS EFFECT ON PORTS OF THE GULF COAST REGION 103-78 Y 4. M 53: ,I^N,G^ The Federal Oredje Pernitting Proce. . . the SUBCOMMITTEE ON OCEANOGRAPHY, GULF OF MEXICO, AND THE OUTER CONTINENTAL SHELF OF THE COMMITTEE ON MERCHANT MARINE AND FISHERIES HOUSE OF REPRESENTATIVES ONE HUNDRED THIRD CONGRESS FIRST SESSION ON THE EFFECTIVENESS OF THE FEDERAL DREDGE PER- MITTING PROCESS ON MAINTENANCE AND IMPROVE- MENTS TO PORTS OF THE GULF REGION DECEMBER 13, 1993—HOUSTON, TEXAS Serial No. 103-78 Printed for the use of the Committee on Merchefl;^;Mai^jne and Fisheries m '^'4K^^ U.S. GOVERNMENT PRINTING OFFICfi" '•i»'^'4fc.'* WASHINGTON 1994 : ForsalebytheU.S.GovernmentPrintingOffice SuperintendentofDocuments,CongressionalSalesOffice,Washington,DC 20402 ISBN 0-16-043671-0 1 THE FEDERAL DREDGE PERMITTING PROCESS AND ITS EFFECT ON PORTS OF THE GULF COAST REGION Y 4. M 53: 103-78 ING The Federal Dredge Pernittinj Proce. . . the SUBCOMMITTEE ON OCEANOGRAPHY, GULF OF MEXICO, AND THE OUTER CONTINENTAL SHELF OF THE COMMITTEE ON MERCHANT MARINE AND FISHERIES HOUSE OF REPRESENTATIVES ONE HUNDRED THIRD CONGRESS FIRST SESSION ON THE EFFECTIVENESS OF THE FEDERAL DREDGE PER- MITTING PROCESS ON MAINTENANCE AND IMPROVE- MENTS TO PORTS OF THE GULF REGION DECEMBER 13, 1993—HOUSTON, TEXAS Serial No. 103-78 Printed for the use of the Committee on Merctiailjl^-Marine and Fisheries U.S. GOVERNMENT PRINTING OFFICE' tj^*'}^'^'.*'.^ WASHINGTON 1994 : ForsalebytheU.S.GovemmenlPrintingOtTice SuperintendentofDocuments.CongressionalSalesOlTice.Washington.DC 20402 ISBN 0-16-043671-0 COMMITTEE ON MERCHANT MARINE AND FISHERIES GERRY E. STUDDS, Massachusetts, Chairman WEIALRLLIHAUMTJT.OH,UFGlHorEiSd,a New Jersey JDAOCNKYFOIUENLDGS,,ATleaxsaksa W.J. (BILLY) TAUZIN, Louisiana HERBERT H. BATEMAN, Virginia WILLIAM O. LIPINSKI, Illinois JIM SAXTON, New Jersey SOLOMON P. ORTIZ, Texas HOWARD COBLE, North Carolina THOMAS J. MANTON, New York CURT WELDON, Pennsylvania OWEN B. PICKETT, Virginia JAMES M. INHOFE, Oklahoma GFEROARNGKEPJA.LHLOONCEH,BRJrU.E,CNKeNwEJRe,rseNyew York AWRATYHNUERT.RAGVIELNCHERLE,STJr,.,MSaoruytlhanCdarolina GREG LAUGHLIN, Texas RANDY "DUKE" CUNNINGHAM, California JOLENE UNSOELD, Washington JACK KINGSTON, Georgia GENE TAYLOR, Mississippi TILLIE K. FOWLER, Florida JACK REED, Rhode Island MICHAEL N. CASTLE, Delaware H. MARTIN LANCASTER, North Carolina PETER T. KING, New York THOMAS H. ANDREWS, Maine LINCOLN DIAZ-BALART, Florida ELIZABETH FURSE, Oregon RICHARD W. POMBO, California LYNN SCHENK, California HELEN DELICH BENTLEY, Maryland GENE GREEN, Texas CHARLES H. TAYLOR, North Carolina ALCEE L. HASTINGS, Florida PETER G. TORKILDSEN, Massachusetts DAN HAMBURG, California BLANCHE M. LAMBERT, Arkansas ANNA G. ESHOO, California THOMAS J. BARLOW, III, Kentucky BART STUPAK, Michigan BENNIE G. THOMPSON, Mississippi MARIA CANTWELL, Washington PETER DEUTSCH, Florida GARY L. ACKERMAN, New York Jeffrey R. Pike, ChiefofStaff Thomas R. Kitsos, ChiefCounsel Mary J. Fusco Kitsos, ChiefClerk Harry F. Burroughs, Minority StaffDirector Subcommittee on Oceanography, Gulf of Mexico, and THE Outer Continental Shelf SOLOMON P. ORTIZ, Texas, Chairman GENE GREEN, Texas CURT WELDON, Pennsylvania ANNA G. ESHOO, California JIM SAXTON, New Jersey GREG LAUGHLIN, Texas JACK FIELDS, Texas (ExOfficio) LYNN SCHENK, California GERRY E. STUDDS, Massachusetts, (ExOfficio) Sheila McCready, StaffDirector Robert Wharton, SeniorProfessional Staff Richard Russell, Minority Counsel (II) CONTENTS Page Hearing held December 13, 1993 1 StatBelmaecnktbuofr:n, Jim, Jr., Esquire, Trustee Emeritus, G^al,veston rB.ay iF-.oundja- tion ^5 PrpD3.rG(i ststGrnGnt Fields, Hon. Jack, a U.S. Representative from Texas, and Ranking Minor- ity Member, Committee on Merchant Marine and Fisheries 4 Gorini, Richard, Environmental Affairs Manager, Port ofHouston ^^» Green, Hon. Gene, a U.S. Representative from Texas Handley, Eddy, General Manager, PortTerminal Authority i^ Prepared statement •"•". "^ Kornegay, H. Thomas, Executive Director and Chief Executi.-ve Officer, Port ofHouston Authority ^ Prepared statement "^ Laughlin, Hon, Greg, a U.S. Representative from Texas ^ Mauro, Garry, Land Commissioner, Texas General Land Office 1^ Prepared statement Ortiz, Hon. Solomon P., a U.S. Representativefrom Texas, andv;C^Vh"a'i.rman, Subcommittee on Oceanography, Gulf of Mexico, and the Outer Conti- Reense,ntDarl.SMhoerlfgan, Deputy Assistant Secretary, U.•"S".••A•rmy -Corps of"•E"ngi:-• 1 neers, accompanied by Col. James P. King, Commander of the South- ^ western Division PrPDJirGfl ststdTiGnt' Rhoades, Russell, Director, Environmental Services Division, Environ- mental Protection Agency ° Prepared statement -•• ^ Shaver, Charles, Jr., Marine regulation specialist, Dow Ch•emical i^ WeldPorne,paHroend.sCtuartte,maenUt.S. Representative from Pennsylvani•a., and...R.^a..n..k..-.. ing Minority Member, Subcommittee on Oceanography, GulfofMexico, and the Outer Continental Shelf ^ AdditGioorinnail,maRtiecrhiaarlds(uPppolritedo:f Houston): "Recommend,ed, „Benefir-cial, tUtse mPlan for Placement ofDredged Materials" by Beneficial UsesGroup 101 CommSuunbiccoamtmiiotntseesubamnidttCeodm:mittee Staff: Memorandum of Decemb,er ^b, i19n9ndo, to Committee Members, on field hearing in Houston, Texas lo5 (III) THE FEDERAL DREDGE PERMITTING PROCESS AND ITS EFFECT ON PORTS OF THE GULF COAST REGION MONDAY, DECEMBER 13, 1993 House of Representatives, Committee on Merchant Marine and Fisheries, Subcommittee on Oceanogra- phy, Gulf of Mexico, and the Outer Continental Shelf Houston, TX. The Subcommittee met, pursuant to notice, at 9:00 a.m., at the Auditorium, Galena Park High School, 1000 Keene, Galena Park, Texas, the Honorable Solomon P. Ortiz (Chairman) presiding. Present: Representatives Ortiz, Green, and Laughlin. Staff present: Sheila McCready, Staff Director; Robert Wharton, Senior Professional Staff; John Aguirre, Clerk; Terry Schaff and Chris Mann, Professional Staff; Lisa Pittman, Minority Profession- al Staff; and Richard Russell, Minority Counsel. OPENING STATEMENT OF THE HONORABLE SOLOMON P. ORTIZ, A U.S. REPRESENTATIVE FROM TEXAS, AND CHAIRMAN, SUB- COMMITTEE ON OCEANOGRAPHY, GULF OF MEXICO, AND THE OUTER CONTINENTAL SHELF Mr. Ortiz. Good morning. I would like to welcome all ofyou here today on behalf of the Subcommittee on Oceanography, Gulf of Mexico, and the Outer Continental Shelf. Today the Subcommittee meets to examine how the Federal dredge permitting process is affecting the ports of the Gulf Coast region and, in particular, the Port of Houston, in their ability to carry out the maintenance and improvements necessary to keep them operating effectively. — Ninety-nine percent of U.S. international trade near—ly one bil- lion tons of cargo annually, worth nearly $500 billion moves in and out of U.S. deep draft ports. The Gulf Coast is home to 11 of the top 20 U.S. ports in terms of total tonnage, with the Port of Houston leading the way. In economic terms, Gulf ports contribute over $40 billion of the $70 billion that U.S. ports generate annually for our national economy, providing half-a-million jobs in the proc- ess. With the approval of the North American Free Trade Agree- ment, all ofthese numbers—can certainly be expected to rise. As the largest Gulf po—rt in fact, the largest in the country in terms of foreign tonnage the Port of Houston and this community will be directly impacted by Federal policy regarding the manage- ment and disposal ofdredged material. (1) This Subcommittee held a hearing in Washington last spring re- garding a pending dredge permit that was being sought by the Port of New York and New Jersey. Because consensus could not be reached about the impact of approving the permit on marine re- sources, the permit was withheld for over three years, while access to the port became obstructed and the cargo had to be diverted to other ports. We come here today to examine the proposed projects of a differ- ent port, with a different set of circumstances, but the issues remain the same: How can the Federal Government foster a na- tional policy that will allow ports to conduct channel and berth im- provements and maintenance as needed in a timely and cost-effec- tive manner while ensuring the protection of human health and marine life? The Subcommittee hopes to hear more today about the adequacy of upland and ocean disposal sites to meet the dredging needs of the ports of Texas and the Gulf Coast. In addition, we will hear about the beneficial uses of dredged material and the benefits and cost associated with such uses and how port access in the Gulf of Mexico may be impacted in the future by changes in Federal and State laws. I want to thank the Vice-Chairman of the Subcommittee, my good friend. Representative Gene Green, for inviting the Subcom- mittee to his district to hold this hearing this morning. Gene has made a significant contribution to the work ofthe Subcommittee in this Congress, and I am glad that we could come this morning to hear about the situation here at the Port of Houston. The testimo- ny presented today will be very important as we continue our work to develop a national policy for the safe and effective management and disposal ofdredged material. I also want to thank and welcome my good friend, Greg Laugh- lin, another fellow Texan and a good friend, and of course, we feel so lucky to have, at least, on my Subcommittee two Texans and, of course, my good friend. Jack Fields, who happens to be the ranking member of the Full Committee. I know that Greg has a tremen- dous interest in the testimony and the interests, as well as Gene and I, that we will be addressing today. I am proud to say that the Houston area has a lot ofwisdom in the selection oftheir Congress- men, in selecting Gene and Greg Laughlin and Jack Fields to rep- resent your interests in Washington, D.C. I look forward to hearing from the distinguished group of wit- nesses that we have assembled before us today, and I thank you all for being with us and making time in your schedule. Mr. Ortiz. Now I would like to welcome the Vice-Chairman of the Subcommittee, Mr. Green, and I yield to Mr. Green for such time that he needs to make an opening statement. STATEMENT OF THE HONORABLE GENE GREEN, A U.S. REPRESENTATIVE FROM TEXAS Mr. Green. Thank you, Mr. Chairman. I will be as brief as possible, but I want to thank the Chairman and welcome everyone to Galena Park High School and Galena Park School District plus the 29th Congressional District. I would like to welcome the Chair and also my good friend, Con- gressman Greg Laughlin, to Houston. I appreciate Chairman Ortiz holding this field hearing today, and I want to thank the Port of Houston and the Committee staff for their assistance throughout the preparations for this hearing. I would also like to thank Galena Park High School individually and the school district. We have utilized the facilities many times over the years for community meetings and hearings, and they are always willing and able to help us on issues that are important to the community. We are close to the port here on the north side of the Houston Ship Channel, and this community, along with all the 29th Con- gressional District, from Bay Town all the way back, is impacted so much by the Port of Houston. The hearing today is significant because of the port and its ef- forts in widening and deepening of the ship channel. With the Port of Houston being the number one U.S. port on foreign tonnage and the third-busiest in total tonnage, it is extremely important that the issue of widening and deepening the ship channel be addressed for safety, economic, and environmental reasons. This is something that has been discussed and researched for quite some time, and I look forward to working with all the inter- ested parties on it. Port access is another issue that is important to the Houston area because ofthe significance to employment and the economy of the Gulf region. Nearly 100 shipping lines operate through the Port ofHouston. It is estimated that 29,000 people work in jobs that are directly related to the port and approximately 110,000 jobs that are indi- rectly related. Many of the people who work at those jobs are my constituents and also are constituents of a lot of the Members of Congress and our community, and I feel this hearing is beneficial to them today, and again, I want to thank Chairman Ortiz for his friendship and also for holding the hearing today and also Con- gressman Laughlin for attending, even though he is a real close neighbor. Mr. Ortiz. I would now like to recognize my good friend, Mr. Laughlin, a member of the Committee, for an opening statement. STATEMENT OF THE HONORABLE GREG LAUGHLIN, A U.S. REPRESENTATIVE FROM TEXAS Mr. Laughlin. Thank you, Mr. Chairman, and I thank you for allowing us to have this hearing. I know, with budget constraints, we cannot have hearings in all the places that members on the Committee represent, but this hearing itself is very important not only to our State but to the nation. I think the importance of this Committee and this hearing is demonstrated by the fact that all four Members of Congress repre- senting the State of Texas on the Merchant Marine & Fisheries Committee are on this Subcommittee. Certainly, we are fortunate to have you as Chairman, and since you and I represent all of the Texas coastline from Mexico to Gal- veston Island, it represents approximately 75 percent or close to 80 percent of the Texas coastline, and Gene representing the Port of Houston, in many ways the nation's most important port, these are issues that we have had to deal with in the five years that I have been on the Committee, and we recognize the importance of the port, the intracoastal waterway system, but we also recognize the importance to the environment, and we have got to find a way to address all these issues and the economic issue of our constituents being able to work and maintain jobs that they have up and down the coast and up and down the Houston Ship Channel and, indeed, in the Port of Houston itself. We have serious concerns of trying to keep the channels open and the waterway system open through maintenance of those sys- tems, and what do we do with the dredge material? It is important that we address that here today, at the very heart of the part of the United States of America that has to address these problems and live with these concerns that we have. So, this is an important hearing for us to have, and I want to commend Congressman Gene Green for his persistence in getting this hearing organized. We all have our busy schedules, and I can thank him sincerely, on my personal behalf, because he had sever- al other proposed dates. None would fit my schedule, and through his commitment and tenacity, we were able to work out that date, and Gene, I thank you, and Mr. Chairman, I look forward to the testimony ofall our witnesses. Mr. Ortiz. Thank you. I appreciate the gentleman's testimony. I would like, also, to ask unanimous consent for the record to in- clude the statements of Jack Fields, who is the ranking minority member ofthe Full Committee, and Congressman Curt Weldon, the ranking minority member of the Subcommittee. Hearing no objec- tion, the statements will be included in the record. [The prepared statements of The Honorable Jack Fields and The Honorable Curt Weldon follow:] Statementof Hon. Jack Fields, a U.S. Representative from Texas, and Ranking Minority Member, Committeeon Merchant Marine and Fisheries Mr. Chairman, I would like to thank you for scheduling this hearing on port access, which is a critical issue for the Port of Houston and the entire Gulf Coast region. Havingrepresented the Port ofHouston for manyyears, I am keenly aware ofthe massive economic losses posed by restricted access to the Port. Dredging the Hous- ton Ship Channel is crucial to the large commercial vessels transiting the area. The Army Corps of—Engineers' largest dredging program is in the ocean waters of the Gulf of Mexico over 50 million cubic yards of silt and sand a year. Fortunately, dredge disposal under the Ocean Dumping Act has not been a problem despite a number ofcontaminated sediment sites ringing Gulfshores. Since the vast majority of the dredge material is clean, it can be used beneficially to restore beaches and create wetlands, and I would like to see increased use ofthis disposal option. This does not mean that the dredging program cannot be improved. At the Sub- committee's March hearing on ocean dumping of dredge material, we learned that the Port Authority of New York and New Jersey took over 3 years to obtain an ocean dumping permit for the disposal of dredge material from Newark Bay. Any attempts to streamline this process would be much appreciated, and I commend the Maritime Administration (MARAD) for undertaking to cut through the red tape. However, I am concerned that MARAD's efforts culminate in more than a paper "strategy" and are translated into real time-saving results. In addition, I am aware ofat least two other port-access related issues which need Congress' attention, and I am pursuing these legislatively. The first is expedited wreck removal authority to speed the removal ofobstructions to navigation caused