Foreword 



This report presents the findings and conclusions of OTA's analysis of approaches 

 to wetlands use. Historically, wetlands were considered wastelands and conversion to other 

 uses was actively encouraged. Two trends in recent decades, however, have altered this 

 perception. First, there has been a growing appreciation for the esthetic and recreational 

 qualities of wetlands; and second, there is now a general recognition of the hydrological 

 and ecological services that wetlands provide. In spite of this increased awareness of the 

 esthetic, recreational, and ecological values of wetlands, pressure to convert wetlands to 

 cropland, commercial development sites, and other uses is still significant in certain regions 

 of the country. This presents a conflict between those who want to convert wetlands to 

 other uses and those who feel they should be left in their natural state. 



Section 404 of the Federal Water Pollution Control Act (1972), now referred to as 

 the Clean Water Act, authorizes the U.S. Army Corps of Engineers (Corps) to regulate 

 the disposal of dredged or fill material into "the waters of the United States," which in- 

 cludes many wetlands. Because this act opened the way for Federal regulation of many 

 development activities that occur in wetlands, the 404 program has been the center of con- 

 siderable controversy. Federal regulation of privately owned wedands through 404 is viewed 

 by some as land-use control, traditionally the legal domain of State and local governments. 

 Others, who view wetlands as a national water resource, argue that the Federal Govern- 

 ment has an obligation to protect those wetlands that are important to the public. 



OTA undertook this study at the request of the Senate Committee on Environment 

 and Public Works and its Subcommittee on Environmental Pollution. It describes the eco- 

 logical values of wetlands, trends in wedands use, and the effect of Federal and State wedand 

 programs on wetlands. In addition, OTA reviewed the existing scientific literature to pro- 

 vide background information on the ecological services provided by wetlands. Although 

 this report deals broadly with wetlands and their use, many of its findings relate directly 

 to the Corps' 404 program, which is the major avenue for Federal involvement in regulating 

 some activities that use wetlands. Furthermore, because agricultural drainage and clear- 

 ing have been responsible for the vast majority of wetlemd conversions since the mid-1950's, 

 OTA examined in some detail the policies that encourage the conversion of wetlands to 

 agricultural uses. 



The data available to resolve these issues proved scanty and of highly mixed quality. 

 For example, good data on wedand trends is only available for the 20-year period prior 

 to implementation of the 404 program. Thus, generalizations about the values of wetlands 

 or the effects of Federal programs, while valid to broad policymaking, are often misleading 

 if applied to site-specific situations. However, within the limitations of this uncertainty, 

 this OTA report provides a policy perspective that could lead to more coherent and ration- 

 al policies for managing the competing uses of wetlands. 



OTA is grateful for the support, assistance, and cooperation received in this assess- 

 ment from many people representing a great diversity of viewpoints on wetland issues. 



JOHN H. GIBBONS 

 Director 



