'v 751 if». ‘ _—-m.~—. !‘_" A k . _ ‘ II . . r u _ l “|1IJI.L PLACE IN RETURN BOX to remove this checkout from your record. TO AVOID FINES return on or before date due. MAY BE RECALLED with earlier due date if requested. DATE DUE DATE DUE DATE DUE 6/07 p:/CIRClDateDue.indd-p.1 TOWARD THE UNDERSTANDING OF MARKETING A _ WATER QUALITY MANAGEMENT PROGRAM 1 \‘ OVERDUE ' W “f5. 0 Gary Spariosu Plan B Summer, 1978- lb; .’ RETURN)» .a _ 3 Place in book a.' charge from c RH” ’ J‘ ,', nov;,,." 4? 32%" TABLE OF CONTENTS INTRODUCTION CHAPTER 1 : THE TRI-COUNTY REGION I. Regional Setting II. Physical FeatureS' A. Topography B. Climate C. Soils D. Groundwater E. Surface waters III. Current Development IV; Summary CHAPTER 2 : THE CULTURAL, SOCIAL AND ECONOMIC ENVIRONMENTS I. The Cultural Environment II. The Social Environment III. The Economic Environment IV. Impacts upon the TCRPC 208 Water Quality Management Plan CHAPTER 3 : THE RESOURCES AND OBJECTIVES OF THE FIRM I. The Objectives of the Firm II. The Resources of the Firm CHAPTER 4 : THE POLITICAL AND LEGAL ENVIRONMENTS I. The Federal Water Pollution Control Act -— PL 92-500 II. State of Michigan Enabling Legislation SUMMARY APPENDIX A FOOTNOTES BIBLIOGRAPHY 22‘ 22 24 25 28 36 37 38 46 46 50 55 N o 0 m \l 0% U1 lb (.0 0 LIST OF FIGURES STATE PLANNING & DEVELOPMENT REGIONS page SOIL ASSOCIATIONS AND RESPECTIVE EROSION RATES FOUND IN THE REGION CLINTON COUNTY SOIL ASSOCIATION MAP EATON COUNTY SOIL ASSOCIATION MAP .INGHAM COUNTY SOIL ASSOCIATION MAP MAJOR RIVER BASINS IN THE TRI-COUNTY REGION' RECOMMENDED WATER QUALITY MANAGEMENT SYSTEM PREFERRED MANAGEMENT SYSTEM APPLICABLE MICHIGAN STATUTORY AUTHORITY. LIST OF TABLES MAJOR LAND USES IN THE TRI-COUNTY REGION TRIéCOUNTY REGION: SELECTED POPULATION AND GENERAL SOCIAL AND ECONOMIC CHARACTERISTICS TRI-COUNTY REGION: SELECTED EDUCATIONAL ATTAINMENT AND GENERAL LABOR FORCE 'CHARACTERISTICS BY RACE COMPARISON OF POLLUTANTS AND SOURCES 6 10 .11 12 .13 ‘16 31 41; 54 18 26 27 43 PREFACE. All too often, the fate of a well-conceived planning program is a dusty shelf in some hard-to-get-to back closet. How effective can a planner expect to be in serving his client or constituency . if his plans and programs fOr effectuating change .are never implemented?_ It is the thesis of this author that such planning programs must, ' in fact, be literally VsOld? to the.client, constituency or admini- ' .strative decisionemaking body prior to that element's acceptance Of the ”prOduct."' The analogy, of course, is that of marketing a- - given Commodity through either a retail or wholesale outlet, or throughout an entire marketing distribution Chain -- for example, the manufacturer to the wholesale unit to the retail outlet to the customer/consumer. ' _ ‘Without queStion, there has been considerable criticism of the marketing profession in regards to the use of ”hard-sell” techniques by marketing distribution outlets to first promote and then to even- tually sell the customer a prOduct that he/she neither wants nor needs. Certainly, one cannot condone such activities.as they must ultimately lead to an ineffective and inefficient use of resources. And yet, pone cannot blame or discredit the manufacturer for marketing a good or service which is intended to satisfy the wants and needs of a given market segment. Afterall, the manufacturer is in business to make. a profit. The marketplace is, of course, the forum for the exchange of goods and services and forms the basis for the Western world's free enterprise economy. In contrast to the operating mechanisms and objectives of the private sector of our domestic economic system, the public sector's several agencies, bureaus, departments and offices are charged with the responsibility of ensuring the health, safety and general welfate of the community at large.’ In addition, social reformers, in recent times, have fought with relative success for the recognition of social problems and for the design and implementation of programs intended -11- to mitigate and perhaps even reverse the effects of the decay of our domestic social order. The marketplace of the private sector is replaced by the extremely complex, multi-dimensioned bureaucracy of the governmental bodies in the public sector. The bureaucracy can and does work effectively and efficiently;, witness the checks- and-balance system of our federal government. But the bureaucracy .can also become a political marionette, being manipulated by those ,gin power or by those individuals or corporate conglomerates who . Can exert their influence by virute of their ownership and/or control ,:Of our nations's.resources. YIn addition, the vast and oftentimes finebulous network of linkages -- both formal and infOrmal -- which '. helpto coordinate and integrate the activities of the bureaucracy's ~Vsevera1 agenCies, bureaus,-departments and offices can be so exploited lthat the flow of information can be effectively turned-off, just as the flow Of blood to and from the human heart can be controlled by the application of pressure upon one of several propitious points of the human anatomy. Such was the case of the Watergate conspiracy when the President's advisors were able to control the flow of infor- ‘ mation.and use their political appointments to literally control the Office Of the Presidency, and thus the affairs of the entire country. Certainly, most every planning activity or decision has its. ipolitical ramifications. Undoubtedly, there is some degree of cor- Iuption, favoritism or whatever else one may wish to label it occurring in nearly every administrative unit. It happens in the 0.8. Congress just as it happens in the administration of our own department. The bottom line is that the planner and the planning discipline are not beyond reproach.r We must "clean-up" our own profession before we can begin to judge another. g I believe that the planning profession can learn a great deal from the marketing discipline in terms of designing and implementing programs and policies based upon the identified, real needs of each and every "market segment" which comprises the community profile. With the passage of the Federal Water Pollution Control Act (FWPCA), PL 92-500, in October of 1972, planners were given a new tool for -iii— the planning, management and coordination of programs designed to abate water pollution problems at a level transcending local boundaries. Section 208 of the Act specified that regional agencies could be designated to prepare areawide wastewater treatment management plans. Several such regional agencies across the country have had a great deal of success with their 208 programs, while many others have had significant difficulites with theirs. I believe that the use of marketing principles applied to the planning process could possibly* improve the potential for implementation of such planning programs. ‘The following.text represents the culmination of a course of study leading to the fulfillment of the requirements of the Plan B option. Prior to the submission of this 2-credit hour effort, I have successfully completed the following sequence of courses as previously approved: - (1) RD 824 -- Watershed Management; 5 credit hours; completed, Spring quarter, 1977. ‘ (2) MTA 804 —- Marketing Concepts and Processes; 4 credit hours; completed, Fall quarter, 1978. (3) MTA 805 -- Marketing: Models, Theories and Stra- tegies; 4 credit hours; completed, Winter quar- ter, 1978. INTRODUCTION TOWARD THE UNDERSTANDING OF MARKETING A.WATER QUALITY MANAGET MENT PROGRAM is intended to provide the professional planner and the municipal planning official with a different perspective in regards to the design and ultimate implementation of the water quality manage- ., ment program. To this end, a case study approach will be employed ‘7utilizing the Tri-County Regional Planning Commission's (TCRPC) ‘Tri-County.Region 208 Water Quality Management Plan, dated August '1977 (and heretofore referred to as the TCRPC plan). The primary data source, therefore, will be the several volumes ’Of documentation issued by the TCRPC. ‘ Even though a case study approach will be employed in developing the arguments in support of my primary thesis, it is the intent of this paper to neither describe the TCRPC plan nor to critically evalu- ate its substance. The former has already been completed by the agency with its several volumes of documentation. The latter would neces- sitate the development of either a marketing model or a set of market- ing guidelines against which the TCRPC plan could be compared and critically evaluated. Such an effort, however, would prove to be of little value in that the TCRPC program was not designed in accordance with, or based upon such guidelines during its development. Of what value then, will this report be to the planning practitioner? The answer to this very important question is that by utilizing the marketing principles that will be discussed throughout this paper, the planning practitioner will hopefully be able to communicate better with the community, and therefore more effectively serve the community and its needs. It is the contention of this author that the lack of communication between the planner and his/her constitu- ency is the primary reason for the failure of their planning programs. One is given the impression that in general, it is only after the planner has completed the design of the program does he/she seek public comment concerning it. The public must begin to play a larger part in the process. »The planner cannot plan effectively P95 the public, unless he/she can communicate and plan wigh the public. This is the very essence, though, of the marketing discipline. The marketing profession differentiates between the concepts of mass marketing and target marketing, the latter being generally accepted as the more desirable and socially-acceptable approach. Mass mar- keting typifies a production-oriented approach, which is predominantly A;organized around the development of a product concept. This approach assumes that all people are.similar and will dasire to purchase I the product being offered. Thus, every man, woman and child is considered to be a potential customer, regardless of the product being marketed. In contrast, target marketing is typical of the market-oriented approach to micro-marketing -- micro-marketing being concerned with the performance of individual business activities which direct the flow of goods and services form the producer to the consumer in order to satisfy the customer's wants and needs, while concomitantly realizing the corporate objectives. The marketeoriented firm recog- nizes that all people are different and attempts to develop a product concept that will meet the needs and/or desires of specific, relatively homogeneous segments of the total population. In developing such a product -- a product evolving from ‘identified real needs -- the market-oriented firm develops the product's marketing mix -- a series of controllable variables including the Product itself, the Place where it is offered for exchange and how it arrives there, how the product is Promoted and the Price for which it is exchanged -- such that it provides the firm with a differential advantage over its competitors. 4 The product's marketing mix is one of the two components which form the framework with which the marketing manager deals. The second component is known as the uncontrollable variables. ‘Included among these variables are the cultural, social and economic environments, the political and legal environments, the existing competitive business situation and the resources and objectives of the firm. It is these several environments and other uncontrollable vari- ables which will provide the basic framework for this paper. Each of these elements will be examined in greater detail in a chapter devoted exclusively to the examination of the relationship between the variable in question and the several components of the marketing mix, as they relate to the TCRPC 208 Water Quality Management Plan, as a product of that agency. Chapter 1 will act as an introduction to the TrijCounty region for the reader who is unfamiliar with the area.. The chapter features a brief description of the regional setting, a more in-depth discussion .of the region's physical features -- particularly in regards to how .these features either limit or facilitate future urban development, ardescription of the nature of the current development within the . region and closes with some broad generalizations concerning the pos- sible patterns of future development within the region, as well as some personal views concerning the respective roles of both the planner and the community in assuring that the development patterns that are realized will, in fact, be desirable. ' . Chapter 2 -- The Cultural, Social and Economic Environments f- presents a discussion of the TCRPC plan in terms of the four elements of the marketing mix -- Product, Place, Promotion and Price -- in relation to the delimiting effects of the cultural, social and ‘ economic environments in which the plan is operational. The dis- cussion opens with a section addressing the relevance of cultural attitudes in the design of the TCRPC plan and includes some comments concerning the changing nature of those attitudes. The discussion then proceeds to examine the context of the social environment in which the TCRPC plan mustaoperate'relative to certain features of that plan. An examination of the economic environment in which the plan is to be instituted then precedes an examination of the impacts of these several environments upon the TCRPC plan in terms of the four elements of the marketing mix. The resources and objectives of the firm are the subject 'of Chapter 3. The chapter begins with a discussion of the objectives of the firm, agency and/or management unit and of the importance. of a sympathetic attitude 1y top management towards a project, both in relation to the TCRPC 208 plan. The larger portion of the chapter is then devoted to a discussion of the resources of the firm, agency and/or management unit and their effect upon the final recommended TCRPC plan. In addition, a list of studies conducted and a cursory examination of their contribution to the ultimate management plan is- presented. Finally, a brief summary of water quality conditions in the region is presented, together with the technical solutions recommended for the abatement of water quality problems in the region. The final chapter, Chapter 4, addresses the nature of the poli-- ‘ tical and legal environments as they impact the TCRPC plan. The I chapter opens with a brief commentary on the political ramifications {'of the TCRPC plan. The remainder of the chapter is then directed toward the examination of the federal water quality legislation and the state's enabling legislation. . A discusSion of the competitive business situation as it impacts the TCRPC plan has been omitted due to its lack of applicability. The paper then concludes with a brief summary statement concerning the overall content and objectives of the work. ‘ CHAPTER 1 THE TRI-COUNTY REGION The intent of this chapter is to provide. the reader, who is . i ; unfamiliar with the Tri-County Region, with a brief desoription of the region' 3 attributes . ,1 In general, these attributes will be consi- . :dered in terms of their contribution or potential contribution to the future development of the region. The attributes to be des- “cribed include the regional setting, the physical features - t0pograf- - phy, climate, soils, groundwater and surface waters -~ and the nature . of the present development within the region. The chapter will con- clude with some summary remarks regarding the regions' 3 attributes ' i ' and their effect upon the. future nature of the three-county area .- 4 ‘ o "u . l ‘ .' "§ ‘ - - - ' - on - ' "" - - ..o-.o ' o 7 ‘ i . dv - I ' L"i. ' .... +4 7 Figure #4 I" .1 -—l3- . INGHAM COUNTY SOIL ASSOCIATION MAP Figure #5 -14- sive development based upon the underlying soils. Unless a compre- hensive sewer system is constructed in these areas, the surcharging of the septic tank tile fields are certain to continue to pose a serious health hazard to the entire Tri5County region. Septic tank failures in the past have been common in the wet periods of the year when the water table is high, surcharging the tile field and causing the raw effluent contained therein to surface.- In poorly drained soils, the effluent remains in the tile field, often necessitating the construction of a second tile field. Well-drained soils may, however, be equally hazardous. Thoughsome of the contaminants are filtered naturally by the sand/gravel components, the close proximity to the rivers and the natural ground water gradient toward the rivers;‘ insure contamination of those waters. ‘ D. Groundwater9 Groundwater represents one of the most important natural re- sources when one is studying water quality management and planning programs. An adequate supply of water is essential to the continued growth and development of the region, both in regard to domestic uses in the home and other agricultural, industrial and power production uses.' _ I - Nearly all potable water supplies in the region are obtained from wells within the corporate limits of the various municipalities, Surface water in the form of rivers and streams is available, but due to seasonal fluctuations in stream flow, its usefulness as a water source is limited. Other areawide waterbodies are too small to provide adequate supplies of water for these uses. Therefore the groundwater found in the glacial deposits in the upper bedrock layer plays a critically important role in meeting the area's water supply needs. _ There are three primary geologic formations in the region which provide water for domestic, industrial and commercial usage: the ' Saginaw Formation, the Grand River Formation and the glacial deposits. Of these, the Saginaw Formation is the major source of groundwater .for the region. It is composed primarily of beds of sandstone and -15- some shale. This 100-800 foot thick formation normally yields sub- stantial quantities of water which are generally of fairly high quality. Occasional high iron and hardness levels have been associated with water obtained from.this formation, however. It is imperative that the planning process recognize the im— portance of comprehensive water management programs. Acquifers, such as the Saginaw Formation, require periodic replenishment, either naturally or artificially. If these sources are to be used for future water supplies, careful planning must be done to insure that future 1; urban development does not encroach upon recharge zones. Adequate planning now can help to avoid serious problems in the future. E. Surface waterslo Surface waters in the region refer to rivers, streams, natural lakes and artificial impoundments. There are ten major river basins located in the Tri-County region; these are the Maple, Stony Creek, Looking Glass, Lower Grand, Thornapple, Battle Creek, Upper Grand,' Sycamore Creek, Red Cedar and Huron (see Figure #6). There are also more than 50 named lakes in the region, the highest concentrations of which occur in southeastern Ingham and northwestern Eaton counties where the glacial deposition was most favorable for lake formation.12 "Lakes Geneva, Ovid and Victoria are the major impoundments of the region, exclusive of the Grand River and its major tributaries. On the Grand River, the Moores Park impoundment and the backwaters of the North Lansing dam are major recreational impoundments.”13 Not to be overlooked is Lake Lansing in northern Ingham County, a site which not too long ago served as one of the major recreational areas in the region. Most of the rivers and lakes in the region have shallow bottoms that prevent thermal stratification. As such, the TCRPC officials report that up to 99% of the region's lake bottoms, in particular, may be capable of growing aquatic plants in the littoral zone.14 The natural eutrophication, or aging, of a waterbody is oftentimes accelerated by the catalytic effect of man's degrading influence. "Nutrients from lawn runoff, road drainage, and failing septic sys- c.3153; Stony-Creek ' a! '; ' ' 5 Looking Glass" Lower Grand River- ' I l;-. -o-'- . "l l: ... e ..._ .I Plunge '._ '- ’ Thornappl T Red Cedar . I . Upper Grand River ' Battle Creek '\ d 'Figure-#611 Major River Basins in the Tri-County Region . ° 'other raw materials. -17- tems are some of the most common man-induced sources of enrichment . . . . In general, increased productivity is common throughout Tri- County lakes but rooted plants (macrophytes) tend to limit the pre- sence of nuisance algae blooms by storing available nutrients and "15 As a result of this increased weed growth, however, some limitations have been placed upon surface water recrea-- tion in the region -- particularly on many of the small shallow lakes throughOut the area. Whereas groundwater sources are of concern primarily for do- mestic uses, surface waters are primarily significant in that they facilitate commercial and recreational pursuits. The Michigan water Resources Commission has thus indicated the designated uses of the region‘s major surface waterbodies for which water quality standards have been adopted: I (1) Recreational uses to include total body contact sports; - (2) Fish, wildlife and other aquatic life to include all intolerant warm.water species of fish; and, (3) Agricultural and commercial uses. . It is evident that the surface waters in the region provide use for a variety of activities. But even though such variety demonstrates the general adequacy: of water within the region, it also indicates the need for increased supervision in the use of the water. III. current Develgpment16 There are 1,097,345 acres of land in the Tri-County region. Approximately 6% of that land (62,687 acres) has been developed for urbanized uses. TheSe uses include Residential, Commercial/Institu- tional, Transportation/Utilities -— including sewage treatment and solid waste disposal facilities, Industrial -- including extractive activities and and inclusive category, Other Urban, which includes such activities as public parks, golf courses and cemeteries. Of these uses, residential activities consume by-far-and-away the largest percentage of land -— 62% or 389940 acreas (see Table #1). Active agricultural pursuits occupy the largest amount of land in the region consuming 835,681 acres or 76% of the total land area. u '9- Jr- -13- Table #1 17 Category hand Use Acreage Category % Total % Developed Residential 38940 62 4 COmmerCial -- ,_ Institutional 6744 ll 1 ‘ Transportation -- , sUtilities 6 0 sewage Treatment 1 0 T SOlid waste Dispofil. 0 7 0 "_ itSub-total‘ 4674 7 . fo" InduStrial _ 4 0 Extractive I fig , Q. _ sub-total. 7246 I” 12 0 Other Urban 5083 8' .1 Category sub-total 62687 100 .6 Active _ Cultivated Cropland 635390. 76 58 Agriculture Tree Fruits ‘ 1933 ‘0 0 ’ Bush Fruits 5704 1 1 Confined Feeding _ 202 0 0 Permanent Pasture 192452 23 17 Category sub-total .H83568l 100 '7" 76 Undeveloped Brushlands 58670 29 '5 ‘Broadleaved Forest: 92216 46 9 Coniferous Forest 1529 l' 0 Mixed Forest 1291 1 0 Open Water 6083 3 l Forested Wetlands 23128 12 2 Shrub Swamp 14087 7 l Marsh 1963 l 0 Category sub-total ‘ 198967 100 18 1097345 100 100 Total '1 ..19- Cultivated croplands utilize 76% of the active agricultural lands (635,390 acres). The only other significant use in this category 7 is permanent pasture lands which occupy 23% (192,452 acres) of the total land area devoted to active agricultural pursuits. The re- maining-uses in this category include bush and tree fruits and confined feeding operations. The remaining 18% of the region's land area -- 198,977 acres -- is undeveloped. 'Most of the uses identified are either forested areas or wetlands. The specific land cover/uses identified are brushlands, broadleaved forests, coniferous forests, mixed forests, open water, forested wetlands, shrub swamps and marshes. C (The reader is referred to the 1972 Land Cover/Use Inventory of Clinton, Eaton and Ingham Counties prepared by the MSU/NASA Remote Sensing Project for detailed descriptions of each of the land cover/use categories identified, as well as for the methodologies employed in obtaining the above data.) IV. Summary Many growth-stimulating forces exist within the Tri—County region. The region's physical features, most notably, are generally conducive to development. In fact, since the land is developable, good agricultural land is being taxed according to the ”highest and best" economic use. This often results in the land becoming too expensive to cultivate. In turn, this increases the pressure upon the landowner to either subdivide or to sell his/her property to a real estate developer. Oftentimes, unfortunately, this results in unbridled urban development. 1 Such growth could possibly occur within the Tri-County region. Accessibility to the region is presently very good and with the com- pletion of the proposed interstate freeway system, which will totally encircle the Lansing-East Lansing metropolitan area, the accessibility to the region should improve further. Also, Capital City Airport intends to expand its facilities, thus improving its services to the region. In addition, several railroad franchises presently service -20- the Tri-County region, including the Amtrak commuter passenger train which operates daily between Chicago and Port Huron. The combination. of available, developabléiggd good accessibility thereto, provides an attraction to several kinds of light industrial development. In addition, an adequate labor force does exist that would satisfy the requirements of such industries. In contrast, further heavy industrial development is unlikely due to the lack of availability and access to sufficiently sized water courses, the inability of such industries to meet Environmental Protection Agency (EPA) pollution stadnards and an insufficiently large labor force. To a great extent, such heavy industrial development is neither desirable nor likely. Urban residential growth and perhaps some light industrial development, however, will occur within the next twenty years. These kinds of development may or may not be desirable. It is often the planner's responsibility for making the final judge- ment concerning.the desirability of such developments. The planner generally does have adequate data to make an objective decision, but he/she must also be cognizant of public sentiment. ' My perception of the planner's task then, is to monitor the public sentiment and then turn that sentiment into concrete goals and objec-~ tives relating to the most desirable, and realistically attainable future social and/or physical configuration for the community or region in question. Policies must then be.formulated relating to how these objectives are to be attained; specific programs are then designed to achieve the stated goals; and perhaps most importantly, ‘ these programs must then be implemented. But these are merely words —- and perhaps lofty ideals. There needs to be a commitment -- a commitment to succeed at the desired goal. It is really no different in life. It has been said that losers make promises, but winners make commitments. There needs to be a commitment by public officials to develop the sort of environment in which it is desirable to live, work and play, and which can also be enjoyed equally by all segments of our society. Furthermore, there needs to be a commitment by the public to become involved in the local planning process because communication and -21- and continuous feedback are essential components of that process. In many cases though, the public must be educated as to both the merits and de-merits of a given project. In my opinion, it is the planner's responsibility to provide Such information. Oftentimes, however, the planner must transcend that effort to literally "sell" the need for his/her projeCt to the public. In order to effectively "sell" this project, the planner must be familiar with the nature of the product even befOre that product i is developed. This requires total familiarity with the enabling ' legislation.» Ideally then, the development of the product will be a joint effort of the planner and his/her constituency (in reality,as previously discussed, public involvement rarely occurs during the project design phase). Theplanner's responsibility, as I view it, is to lend technical expertise to this process, while the public is responsible for ensuring that the public sentiment is aired and accounted for. In order for the planner to effectively communicate with the public, he/she must become totally familiar with their social and economic characteristics and the nature of the culture which shapes their lives. The cultural, social and economic environments in which the TCRPC plan evolved is addressed in Chapter 2. CHAPTER 2 THE CULTURAL, SOCIAL AND ECONOMIC ENVIRONMENTS The cultural, Social and.economic environments are concerned with how and why people live and behave as they do. The marketing manager is concerned with these environments for they largely account' “ for the differences in the consumption behavior of the targeted market segment. The planner should also be concerned with these environments because an individual' 5 cultural, social and economic heritage largely account for his/her attitudes toward life and work, and are a reflection Of his/her religious, ethical and moral values. Furthermore, it is evident that such attitudes have an effect upon _ an area's (local, regiOnal, state or national) rate of growth and the direction of its development. I. The Cultural Environment The American culture, since the beginning of our country, has placed considerable value in the ”Protestant WOrk Ethic." Indeed, our domestic ecOnomic System, the free-enterprise system, encourages and rewards hard work and achievement. ”Americans are willing to work, but they also expect material rewards."18 Our cultural heritage has also traditionally placed high value upon personal freedom, individualism and pluralism. .In fact, the Revolutionary War, which won America its independence, was fought because the colonies dis- puted the Crown's right of, and imposition of government upon theme without any representation for them in the process. Certainly, the concepts of personal freedom and individualism are not only integral to an individual's motivation for personal growth, but as previously implied, they are also the cornerstones Of our capitalistic economic system. And the concept of pluralism forms the basis for not only -23- our political system, but for the recent (and continuing) social revolution, as well. ‘ The combination of these particular elements.gives rise to the issue of growth management, a particularly important issue to. planners throughout the country. The point of contention, as brought to litigation in the Petaluma, California case, was whether or not a municipality could legally restrict an individual's freedom of travel. Petaluma, as the reader may recall, used its zoning ordinance (which took the form of amoratorium on municipal annexation) as a tool to p _ enforce its policy of growth management. To the best of my knowledge, Cf the court's decision was in favor of the plaintiff declaring the : ordinance to be unconstitutional. This ruling naturally had an effect upon similar zoning ordinances throughout the country and in general,“ caused considerable concern over the future of land use policy nation- wide. . ‘ Land use policy and the land use configuration resulting therefrom have a considerable effect upon water quality within any given region. Table #1 presents the major types of land uses occur- ring in the region and their frequencyof occurrence. ~Some of these uses can have major adverse impacts upon the quality of the region's “water. The tremendous amount of concrete that goes into the construc- tion of residential, commercial and transportation facilities consi- derably increases the amount of urban runoff which reaches a region's watercourses. The quality of this runoff is almost always very poor. ‘ The seepage or leaching from inadequately sealed solid waste disposal facilities can also pollute the region's rivers and streams. This is a particularly common problem since many such facilities are located near such watercourses. Industrial and extractive activities often dump their wastes and byeproducts into local watercourses thereby causing the pollution of those watercourses. Utilities often use local watercourses in their cooling processes. The re- turn of the slightly warmed water to those watercourses destroys the local aquatic environment. And the extensive use of fertilizers in agricultural activities often results in runoff which adds nutri- ents to the local watercourses and which in turn produces nuisance -24- algae blooms. These impacts are but a few of the potential adverse effects that could result from poor land use planning. Even though these impacts are largely attributable to cultural attitudes, there is no reason why such attitudes cannot be altered. There is evidence, in fact, that our domestic cultural values are changing. There has been considerable interest in recent years in the pursuit of leisure- 'activities and in the enjoyment of life. Indeed, the increasing interest . . . ”in the 'quality of life' suggests a desire for less . materialistic solutions and, in time, we may learn to satisfy our needs in different ways."19 Certainly, the four-day work week and the concept of ”flex-time" are examples of our changing cultural attitudes.“ The value placed upon recreation and water-related recreational activities,_in particular, are further examples of such changing cultural attitudes. The concern.for both the quality of life in a'f our ecosystems - both aquatic and terrestrial -—and the health and safety of our population, in terms of high standards for water quality for activities such as total body contact aquatic sports, has been the major impetus behind the enactment of the 208 water quality ‘ legislation. II. The Social Environment The interaction which occurs between an individual and his/her fellow man is largely governed by the social environment to which he/she belongs. The entire issue of moral behavior and an individ- ual's professional ethics fall within the purview of the social en- vironment. Of particular importance to both the planner and the marketing manager is the dichotomous relationship between "right" and "wrong". One's social experience -- both past and present -- govern his/her social behavior. Thus, in preparing either a planning or marketing program, the individual responsible must thoroughly acquaint himself/herself with the social characteristics of the groups of people which the program will directly impact prior to the -25- development of that program. The resulting sensitivity to the needs and global desires of these groups will thus aid the individual in developing a program (together, ideally, with representatives of these groups) that Will most effectively realize the common ob- jectives of both the agency and the public.' Table #2 presents selected population and general social and economic characteristics for the Tri-Coungggiogimilarly, Table #3 presents selected educational attainment and general labor force characteristics by race for the state. In terms of population dise _tribution, the region accounts for only 4.3% of the state's popu- lation. ‘Within the region, however, we see that Ingham.County accounts for nearly 70% of the region's population. As expected, the nine* 'township Lansing 4 East Lansing metropolitan area captured approxin mately 60% of the region's 1970 population distribution. If we can assume that the region's racial cOmposition is roughly equal to that of the state, we can use Table #3 to tell us that nearly 90% of the region's population is while, while the remainder is black or ofarw other ethnic origin. This is a dubious assumption to make, at best, however. Perhaps a better indication of the racial distribution of the Tri-County region could be realized by comparing a composite of the racial distributions for urbanized areas across the state against the total state figures. This, of course, also assumes that (l) the composite figures are representative of the Tri-County re- ‘gion, and (2) the composite figures are obtainable; obviously, the racial distribution figures for the Tri-County region are not available on a county-wide basis. ‘ III. The Economic Environment The economic environment is also very important to the planner and the marketing manager for it affects expenditures, and thereby alters an individual's or family's patterns of expenditure during times of both relative prOSperity and adversity. The limits of ex- penditure for an individual spending unit is primarily a micro- economic concern?2 In general, an individual will spend a given -25- n.., J ‘ , I. ..m. .m ‘1: .:Hocoamfl>oumv mhma ocm “ooma>ouv mead .H >H5b .mmmum couunooouuoz one modu_csoo someone: mo coaumasmom man no mmumefiumm. .msmcou on» no common .v . . mmmuo>m augsoo mass» .m Hmpou cowoms mo poached .N . Hmuou woman no ucooumm .H o.m~ . m.n~ m.bn o.m~ ma.o~ h.om whoa no ooomaw . mo mfioocw sues w m.m m.o v.m ~.m mm.m m.p 1Hm>ma suum>om can» " mood «Sousa cows w mecca mmHHH maxed «fiend . noamaa «mode 0800:“ cowomz mquszm .e.mH m.om ~.ea m.mH m~.H~ s.ma mcouumasooo . . V I usmEGHm>om m 0.5m o.mm H.me v.mm mm.wv m.vv macaumosooo umaaoo opens a m.o~ v.am m.¢m v.am mo.a~ m.mm mcowumosooo aneuumsocw w m.m m.m m.m N.v mm.v m.m ucoEmonEmcs w moan momma cowaw>wo w~.H om.a mwuH.u mm.a. mmv.a ~m.H owns“ Hoxuos o» Hoxuozlcoz Hzmzwoqmzm I: .i The oovmma .m.3 com: N6.” oommm v4 832.. oooaaam. . . e mp3 ., I , . . . t. . .H hash oouofiaumm Hem mowmmm gem mmoamm «.md «ammo w.~.n mmvmw mé mnemhm $02.3 2.3 . onadflomom ouumz aucsoo ausoou aucso cnmwcoflzm Namcwmcme «m smsmcm «a coumu aw coucw Ha amuoa mo oaumwuouomnmnu II. commmm~xucooolana ououm moHamHmmsummmmu UHzozoom ozo quuom Admmzmo 02¢ onamqomom omaumqmmuonomm wezoounnms 4 2 game . -27- kuou muwum mo unmoumm .H aw mwnsa . as gnome oovqm unmaaoamsoca ma mammma so , nmmaoaa mm¢om- mouom gonna aMfiHH>Hu. Ha Hmmumm mm moaommm «Nmmmmm umoHo . can my» «a II mmamfimm ma mama~ mm Hooaoa vvmmma pcmamoamamas oa Huavmw om Homwfiom ~m~mm- mouom gonna cmwaa>flo Ha oawmmm mm «mammFN ¢moumom umnao can .mum «a In mmamz In m.oH In H.~H. H.~H omumamsoo mumm» Hoonom cmwwmz OH mmmmnq ‘ om mommHH¢. Ho¢¢mm¢ nocao no . _ mm and cowumasmom Hmuoa NH mmaamoa _ "mm mommvmh mmomsmm cowumasmom dance a umnuo nan xvnam « mafia: ammwaowz. H 1 ..xpu H owumwumuomumnu 00mm mo mumum wodm an moHamHmmeoamdmo woman momma qmmmzmu 924 BZMZZH¢994 AflZOHBflUDom omaomqmm Hm m¢ manna 3 «ZOHUmm NBZDOUIHmB -28- percentage of his/her income based upon his/her respective social and cultural heritages. Naturally, the ultimate micro-economic limiting factor is an individual's income, the amount of which is deter- mined roughly according to that individual's contribution to the pro- ductive effort of the firm for whom.he/she is employed. ‘ . In turn, the firm is rewarded for the contributions that is. makes to the national economic environment. The macro-economic * environment is less sensitive to minor fluctuations in its various ; sectors than is the micro-economic environment. There are, however, a number of factors which significantly impact the “health” of our' "'nation‘3 gross national product: the nation's domestic and foreign policies, the balance of trade, inflation, unemployment, federal -reserve.policy, taxation and the underlying technological base, which affects the manner in which resources of the economy are converted to output. . ' _ . The data in Tables #‘ed 2 & 3 provide an indication of the nature of the region's economic environment. We see that both the region's non—worker to worker ratio and the percent of unemployment in the region's civilian labor force are less than the state-wide average. Correspondingly, the region compares favorably to the state-wide averages in terms of median family income and the percent of familys living in the region yet earning less than the poverty , level income. ' IV. Impact upon the TCRPC 208 Water Quality Management Plan The cultural, social and economic environments have been dis- cussed is terms of their potential impacts upon the activities of the planner and the marketing manager, but how do they relate to water quality and the TCRPC plan, and what do they have to do with the 4 P's: Product, Place, Promotion and Price? ‘ The various environments described above combine together to impact an individual's or family's experience with water-related activities. Water sports and the aesthetic appreciation derived from scenic aquatic environments are, unfortunately, somewhat elit- ‘O’ -29- est in the sense that they are.related to a unit's financial ability' to purchase user privileges. The well-to-do professional/white collar wage earner perhaps owns a cabin cruiser, a ski-boat or may- be even a cabin in Michigan's beautiful north counry. Oftentimes, ~this individual's family belongs to a private country club where the lake or pool is kept very clean and where the children are taught to swim by a professional instructor on a relatively private basis.' ‘The semi-skilled, blue-collar wage earner, in contrast, may occasion- ally rent a canoe or row-boat at a metropolitan park where the beach and grounds are littered with empty beer cans and waste paper. The 'Vindividual's children, if they are fortunate, learn to swim.at the local community pool or ”Y” where the masses gather more as a means of escaping the heat than for any other reason. Obviously, the quality of the water under such crowded conditions leaves a great deal to be ' desired. And in the more natural settings along Michigan's many rivers and streams, an individual's appreciation for nature's beauty is oftentimes hindered by the nuisance algae blooms or phosphate pools floating by, not to mention the malodorous smells emanating therefrom. The TCRPC plan implicitly assumes that poor water quality is V _undesirable. This is a value judgement based upon the social and cultural environments. The 208 program, of course, is not limited to the Tri-County region. The legislation was enacted by the 0.8. Congress and is administered through the EPA. The legislation provides for local and regional participation since water quality problems are site specific and measures designed to abate them must also be site specific. ‘ I — in The ”Product" is, of course, the TCRPC plan. Its basic purpose is to first devise "the most cost-effective/institutionally feasible means for controlling water pollution in the region . . . . ”23 and then to implement the plan in order to achieve the EPA designated water quality standards. The plan was to be comprehensive in nature taking into account pollution from municipal and industrial wastewater, residual wastes, storm and combined sewer runoff and agricultural runoff. .Particular emphasis was to be placed upon nonstructural alternatives and approaches to pollution control (fiscal policy, land management, non—point source 9 .governmental structure to achieve areawide water quality goals. -30- preventive measures) rather than traditional measures which entail large expenditures in waste treatment plants . . . . The work program was broken into three major components which were integrated throughout the two year planning process: (1) project administration,, (2) public participation and (3) data collection and analysis. 24 The first two of these, pnject administration and public participation, will be discussed in greater detail in this chapter, while the third component, data collection and analysis, will be discussed in Chapter 4, as previously outlined. , _ The project administration, or management process, is. indeed a very important element in the plan because the plan is.so complex ‘and far-reaching that it could easily become entangled in its own organization. 4A strong administrative structure is a necessary re- quirement for such a plan as it will help to ensure continuity through- out the duration of the program. Additionally, a well-planned ad-‘ ministrative structure will include ample opportunity for citizen participation in terms of program.development,‘continuing administra- tion and non-structural comment -- that is, comment by individuals not involved in the development and administration of the program. The dominant feature of the TCRPC planes, in fact,_the.’intro- duction of coordinative and management mechanisms within the'exigging n These measures could be immediately implemented in that the statutory. authority presently exists by which this could be done. The proposed water quality management system is depicted in Figure #7. As shown, the legislative and regulatory responsibilities, both state and fed- eral, are the purview of the EPA and the Water Resources Commission of the Michigan Department of Natural ResourceS. General oversight and planning, the designated roles of the regional agency, are the" responsibility of the Tri-County Regional Planning Commission. The TCRPC has representatives from each of the member counties in addition to representatives from the cities of Lansing and East Lansing and another from Meridian Township. Its five primary areas of responsibility include: (1) review and updating of the plan, (2) sampling and monitoring of the improvement of water quality -31; ‘_ .. . ..._ . 3.033%...” .. .. A. ...._... ...__ . 7:3. Q .. .f .. ; Ir 32.2883. _. .2: r2456 :3 ..-.. .. . ., msmsssireafi .1. . __ 2:59.15 . «22$ . .53. has lessen ,. a 2.5.3 552— 123:2 2.12:. ._ , sagas“. . .. .. . , . mass ages: Essa “Ha: 338233 .. 555315 . . fines: senses was? ease. $58-3 . . 3