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This report was prepared as an account of work sponsored by the United

States Government. Neither the United States nor the United States Atomic
Energy Commission, nor any of their employees, nor any of their contractors,
subcontractors, or their employees, makes any warranty, express or implied, or
assumes any legal liability or responsibility for the accuracy, completeness or
usefulness of any information, apparatus, product or process disclosed, or
represents that its use would not infringe privately owned rights.

.
 ORNL-NSF-EP-16

Surface Mining
and
Land Reclamation in Germany

1.A. J e p h e w

MAY 1972

ORNL-NSF ENVIRONMENTAL PROGRAM

Work S u p p o r t e d b y t h e N o t i o n a l S c i e n c e F o u n d a t i o n R A N N P r o g r a m
u n d e r NSF interagency A g r e e m e n t N o . A A A - R - 4 - 7 9

OAK RIDGE NATIONAL LABORATORY

ORRATED BY UNION CARBIDE COR?ORATION FOR THE U.S. ATOMIC ENERGY COMMISSION
Co ntro c t No. W .7405-e n g - 26
 iii

TABLE OF CONTENTS
Page No.

ABSTRACT 1

1. INTRODUCTION 2
1.1 Foreword 2
1 . 2 German Strip-Mine Reclamation 2

2. A REVIEW OF U.S. SURFACE-MINING DAMAGE 5

2.1 C o s t s of U.S. Strip-Mining 8

3. THE IMPORTANCE OF LIGNITE I N WEST GERMANY 10

4. BROWN-COAL M I N I N G TECHNOLOGY 15
4 . 1 Open-Pit Mines 15
4.2 Mechanization and Automation of t h e L i g n i t e Mines 16
4.2.1 Bucket Wheel Excavators 18
4.2.2 T r a n s p o r a t i o n o f Bulk Materials 19
4.3 Ground and S u r f a c e Water C o n t r o l 20

5. LAND REHABILITATION 21
5.1 The E x t e n t and C o s t s of Land Reclamation 21
5.1.1 A Panoramic V i e w o f Land Reclamation 21
5.1.2 Meticulous Advance Planning 22
5.2 F o r e s t s and Lakes 24
5.3 Winning New Farmland 26
5 . 3 . 1 The R a t i o n a l e - For t h e F u t u r e 26
5.3.2 S t r u c t u r i n g t h e New Landscape 28
5.3.3 I n i t i a l C u l t i v a t i o n and I n t e r i m Management 33

6. SOCIAL AND ECONOMIC IMPROVEMENTS 36

6.1 Agriculture 36
6.2 V i l l a g e s 40
6.3 Recreation 42

7. GOVERNMENT REGULATION AND SUPERVISION 45

7.1 H i s t o r i c a l Development 45
7.2 The Brown Coal Committee 46
7.3 Implementing t h e Mining and Reclamation P l a n 49
7.4 S t a t e Mining O f f i c e 50

8. FORMULATION OF A U.S. POLICY ON SURFACE M I N I N G 52

ACKNOWLEDGEMENT 58

REFERENCES 59

BIBLIOGRAPHY 61

APPENDIX I - A CONTRAST I N ATTITUDES 66

APPENDIX I1 - GERMAN SURFACE M I N I N G LAWS 77

 A B S T R A C T

T h i s r e p o r t d e s c r i b e s mining and l a n d r e s t o r a t i o n methods as w e l l

a s p l a n n i n g and r e g u l a t o r y procedures employed i n West Germany t o

a m e l i o r a t e environmental impacts from l a r g e - s c a l e s u r f a c e mining. The

Rhineland c o a l f i e l d i n North Rhine Westphalia c o n t a i n s some 5 5 b i l l i o n

t o n s of brown-coal (or l i g n i t e ) , making t h e r e g i o n one of Europe's most

important energy c e n t e r s . The l i g n i t e is e x t r a c t e d from huge , open-pit

mines, r e s u l t i n g i n l a r g e a r e a s of d i s t u r b e d l a n d . The German reclama-

t i o n approach i s c h a r a c t e r i z e d by p l a n n i n g and c a r r y i n g o u t t h e mining

p r o c e s s as one continuum from e a r l y planning t o f i n a l r e s t o r a t i o n of

l a n d and i t s succeeding use. S i n c e t h e c o a l f i e l d is l o c a t e d i n a

populated r e g i o n w i t h s e t t l e m e n t s d a t i n g back t o Roman t i m e s , whole

v i l l a g e s l y i n g i n t h e p a t h of t h e mining o p e r a t i o n s sometimes have t o

. be evacuated and r e l o c a t e d . Even b e f o r e mining b e g i n s , d e t a i l e d concepts

must be worked o u t f o r t h e new landscape which w i l l f o l l o w : t h e topo-

graphy, t h e w a t e r d r a i n a g e system, lakes and f o r e s t s , and t h e i n t e n d e d

land-use p a t t e r n a r e designed and s p e c i f i e d i n advance. Early, d etailed

p l a n n i n g makes it p o s s i b l e t o c o o r d i n a t e mining and c o n c u r r e n t l a n d

reclamation a c t i v i t i e s . The comprehensive approach p e r m i t s t r e a t i n g

t h e o v e r a l l problem as a whole r a t h e r t h a n d e a l i n g with i t s s e p a r a t e

a s p e c t s on a piecemeal b a s i s .

1
 1. INTRODUCTION

1.1 Foreword

The Environmental Program of t h e O a k Ridge N a t i o n a l Laboratory i s

c u r r e n t l y i n v e s t i g a t i n g t h e environmental impacts of e l e c t r i c i t y p r o d u c t i o n

and use. A s p a r t of t h i s i n v e s t i g a t i o n , which is funded by a g r a n t from

t h e N a t i o n a l Science Foundation, we a r e g a t h e r i n g d a t a t o d e s c r i b e q u a n t i -

t a t i v e l y t h e environmental damage from t h e c o a l energy c y c l e (see F i g u r e 1)

t o compare it w i t h a l t e r n a t i v e f u e l cycles. W e have found t h a t much o f

t h e damage a s s o c i a t e d with t h e c o a l c y c l e i s i n c u r r e d d u r i n g t h e mining

stage. I n t h e United S t a t e s , c o a l s u r f a c e mining has d i s t u r b e d l a r g e areas

of l a n d and degraded t h e q u a l i t y of thousands of m i l e s of streams and

rivers. The e x t e n s i v e damage from s t r i p - m i n i n g has f o s t e r e d a growing

p u b l i c awareness of t h e need t o develop b e t t e r methods of mining c o a l -

methods which can meet t h e n a t i o n ' s demand f o r energy w i t h o u t c a u s i n g

n e e d l e s s d e s t r u c t i o n of l a n d , w a t e r , and f o r e s t r e s o u r c e s . To h e l p d e s i g n

e f f e c t i v e mining and l a n d c o n s e r v a t i o n measures, it is u s e f u l t o examine

programs which have been adopted by o t h e r i n d u s t r i a l n a t i o n s f a c e d w i t h

similar problems. This r e p o r t d e s c r i b e s t h e p l a n n i n g , t e c h n o l o g i c a l , and

r e g u l a t o r y procedures which are used i n t h e F e d e r a l Republic of Germany

( W e s t Germany) t o a m e l i o r a t e t h e harmful environmental consequences o f

l a r g e - s c a l e s u r f a c e mining o f brown c o a l .

1.2 G e r m a n S t r i p Mine Reclamation

On March 1, 1966, a s p e c i a l team a p p o i n t e d by P r e s i d e n t Johnson

t r a v e l e d t o West Germany t o learn about German c o n s e r v a t i o n e f f o r t s and

t o s t u d y air and water p o l l u t i o n c o n t r o l programs. The f i n d i n g s o f t h e

.
s t u d y team with r e g a r d t o s t r i p - m i n e l a n d restoration a r e as fo1lows:l

2
 3

. ORNL-DWG 71-9848R

IMPAIRED SCENIC BEAUTY

RAVAGED LAND AND DEPLETED
RESOURCES
LAND AND NATURAL RESOURCES- STRIP MINING
)ACID WATER RUN-OFF,

I
COAL
DEGRADED WATERSHED SYSTEMS

EROSION OF ACCESS ROADS

LAND FOR ACCESS ROADS
IMPAIRED SCENIC BEAUTY
LAND USAGE FOR RAILROADS
PUBLIC ROAD DAMAGE AND
PUBLIC HIGHWAYS
TRAFFIC HAZARDS

COAL
GASES AND PARTICULATE
EMISSIONS FROM STACKS
WASTE HEAT DISCHARGED TO
WATER-WAYS OR ATMOSPHERE
AIR, WATER, AND LAND
CENTRAL POWER ASHES AND SLAG
RESOURCES INVESTMENT
STAT10N WATER RUN-OFF FROM ASH POND
IN POWER STATION
AND COAL STORAGE AREA

I
ELECTRICAL
DUST FROM COAL HANDLING
CHEMICALS FOR WATER TREATMENT

POWER

ENE RGY LOSS E S DURING TRANS MIS S ION

DESTRUCTION OF WILD-LIFE HABITATS
LAND USAGE
HERBICIDE USAGE
SCARCE METALS TRANSMISSION
UNSIGHTLINESS OF TRANSMISSION
CORRIDORS

MUNICIPAL POWER LINES

AND SUBSTATIONS
SCARCE METALS

t LOCAL
DISTRIBUTION

AP P L ICAT1ONS
UNS I G HT LY OV E R HEAD L INES
LAND USAGE IN HIGH COST AREAS

F i g . 1. S o m e Adverse Environmental Impacts of t h e Coal Energy Cycle.

 4

"The German p r a c t i c e of r e s t o r i n g t h e i r s t r i p - m i n e d areas t o

p r o d u c t i v e use c o n t r a s t s s h a r p l y with common p r a c t i c e i n t h e United
S t a t e s . R e s t o r a t i o n of " s t r i p p e d land" i s c o n s i d e r e d i n Germany
p a r t of t h e c o s t o f doing b u s i n e s s . Mining f i r m s a r e r e q u i r e d by
law t o formulate plans f o r r e s t o r i n g t h e landscape b e f o r e t h e f i r s t
spade of l a n d i s t u r n e d . ... The Rhineland brown c o a l a r e a has
developed an exemplary program f o r e x p l o i t a t i o n of t h e r e s o u r c e ,
r e s t o r a t i o n of t h e l a n d s c a p e , and r e c o n s t r u c t i o n of t h e s o c i a l ,
economic, and c u l t u r a l l i f e of communities formerly l o c a t e d on mine
sites. I t i n v o l v e s c o o p e r a t i o n of t h e s t a t e and mine o p e r a t o r s ,
with c o n s u l t a t i o n by r e p r e s e n t a t i v e s o f a l l a f f e c t e d l o c a l c i t i z e n s .
The goal i s t o e x p l o i t t h e d e p o s i t s a t economic c o s t s b u t , through
p l a n n i n g and t h e e x e r c i s e of government i n i t i a t i v e , t o l e a v e t h e
neighborhood a b e t t e r p l a c e t h a n b e f o r e t h e m i n i n g s t a r t e d . ... By
c o n t r a s t , t h e work of mine r e s t o r a t i o n i n t h e United S t a t e s i s i n
its infancy. ... A thorough understanding of t h e German approach
t o mine r e s t o r a t i o n would be h e l p f u l for t h o s e who are now a t t e m p t -
i n g t o f i n d s o l u t i o n s t o t h e problem i n t h i s c o u n t r y . "

The above words, w r i t t e n more t h a n f i v e y e a r s ago, a r e t a k e n from t h e r e p o r t

" N a t u r a l Resources Mission t o Germany - A S p e c i a l Report t o t h e P r e s i d e n t "

by t h e former S e c r e t a r y o f t h e I n t e r i o r , S t e w a r t L. Udall. Since then, t h e

sought-for s o l u t i o n s t o t h e environmental ravages of s t r i p - m i n i n g have n o t

been d i s c o v e r e d , l e t a l o n e implemented.

I n view of t h e c o n t i n u i n g importance of t h e s t r i p - m i n e i s s u e i n the

United S t a t e s , w e have i n v e s t i g a t e d i n g r e a t e r d e t a i l t h e s u r f a c e mining

methods and l a n d r e s t o r a t i o n program employed i n t h e Rhineland brown-coal

area. A g e n e r a l d e s c r i p t i o n of t h e German l a n d r e c l a m a t i o n methods is

a v a i l a b l e i n t h e p u b l i c l i t e r a t u r e .2 We have supplemented t h i s i n f o r m a t i o n

by making an o n - s i t e v i s i t t o t h e W e s t German brown-coal (lignite) fields

and by s t u d y i n g t h e t e c h n i q u e s used t o r e h a b i l i t a t e l a n d a f f e c t e d by t h e

huge, open-pit mines of North m i n e Westphalia (Nordrhein-Westfalen) . Here

w e were p a r t i c u l a r l y i n t e r e s t e d i n t h e r e c l a m a t i o n l a w s and how w e l l t h e y

are enforced. I n g e n e r a l , w e found t h a t t h e l a n d r e s t o r a t i o n program has

been l a r g e l y s u c c e s s f u l and that s t r i p - m i n i n g is no l o n g e r a c o n t r o v e r s i a l .

p u b l i c i s s u e i n Germany. O f particular interest are the institutional
 5

arrangements t h a t have been worked o u t t o a s s u r e comprehensive planning

f o r l a n d r e s t o r a t i o n b e f o r e t h e s t a r t o f mining. Many f e a t u r e s of t h e

German approach could be a p p l i e d t o s t r i p - m i n i n g problems i n t h e United

States.

2. A REVIEW OF U.S . SURFACE M I N I N G DAMAGE

A b r i e f d e s c r i p t i o n of t h e n a t u r e and e x t e n t of environmental damage

caused by c o a l s t r i p - m i n i n g i n t h e United States may h e l p t o p l a c e t h e

o v e r a l l problem i n p e r s p e c t i v e and t o h i g h l i g h t t h e importance and r e l e -

vance of t h e German l a n d r e s t o r a t i o n approach t o t h e U . S . situation. The

s i g n i f i c a n c e of c o a l s u r f a c e mining as r e l a t e d t o environmental d e g r a d a t i o n

has been w e l l documented i n s e v e r a l e x c e l l e n t r e p o r t s . E s s e n t i a l l y , two

b a s i c f a c t o r s have c o n t r i b u t e d t o t h e magnitude of t h e problem w e f a c e

today: the g r e a t l y i n c r e a s e d consumption of c o a l f o r e l e c t r i c power

g e n e r a t i o n s i n c e World War 11, and t h e r e l a t i v e l y r a p i d growth of s t r i p

c o a l p r o d u c t i o n d u r i n g t h e p a s t decade. C o a l consumption f o r e l e c t r i c i t y

production i n c r e a s e d f r o m 51,474,000 t o n s i n 1940 t o 310,312,000 t o n s i n

1969 and, d u r i n g t h e same p e r i o d , t h e amount of coal t h a t had been e i t h e r

strip-mined o r augered (mined by b o r i n g i n t o t h e mountainside) rose from

43 ,167,000 t o n s t o 213 ,373,000 t o n s .

I n coal s u r f a c e mining, t h e overburden ( t h e e a r t h and rocks l y i n g

above t h e c o a l seam) i s f i r s t removed, and t h e exposed c o a l i s t h e n ex-

tracted. S u r f a c e mining conducted i n r e l a t i v e l y f l a t t e r r a i n is commonly

called area stripping. The s u r f a c e of t h e l a n d i s f i r s t s c a l p e d of t r e e s ,

and a deep t r e n c h i s t h e n c u t through t h e overburden t o expose a long s t r i p

of t h e c o a l bed. The e a r t h , c l a y , and rock overburden i s d e p o s i t e d

 6

a d j a c e n t t o the t r e n c h t o form a long " s p o i l " bank. A f t e r t h e coal i s

removed, a second t r e n c h is c u t p a r a l l e l t o t h e f i r s t , and t h e overburden

i s dumped i n t o t h e f i r s t t r e n c h . The process i s r e p e a t e d u n t i l m o s t o f

t h e r e c o v e r a b l e c o a l has been e x t r a c t e d , r e s u l t i n g i n a s e r i e s of p a r a l l e l ,

a d j a c e n t s p o i l r i d g e s , which g i v e the mined l a n d t h e appearance of having

been worked o v e r by a g i a n t plow. The f i n a l c u t produces an open t r e n c h

bounded by a s t e e p w a l l c a l l e d a h i g h w a l l .

Contour s t r i p p i n g i n h i l l y r e g i o n s p r o g r e s s e s i n t h e same manner

e x c e p t t h a t t h e process is h a l t e d sooner - as t h e t h i c k n e s s of t h e over-

burden becomes t o o g r e a t . Work s t a r t s a t t h e o u t c r o p of c o a l a l o n g t h e

hillside: A s l i c e of overburden i s removed and dumped on t h e downslope

side. The c o a l i s t h e n removed, and a second c u t i s made through t h e

overburden t o expose more c o a l . F i n a l l y , when the overburden i s too

t h i c k f o r f u r t h e r economical s t r i p p i n g o p e r a t i o n s , augers as l a r g e as

seven f e e t i n diameter may be used t o d r i l l h o r i z o n t a l l y s o m e s e v e r a l

hundred f e e t i n t o t h e mountain t o b r i n g o u t a d d i t i o n a l c o a l . Using t h i s

combination of s t r i p p i n g and a u g e r i n g , t h e mining o p e r a t i o n s proceed

along t h e h i l l s i d e l e a v i n g behind a s t e e p , n e a r l y v e r t i c a l h i g h w a l l , w i t h

the s p o i l m a t e r i a l d e p o s i t e d on the bench o r c a s t down t h e mountain.

To o u r knowledge, an a c c u r a t e survey of t h e t o t a l l a n d area d i s t u r b e d

by t h e s u r f a c e mining of c o a l has n e v e r been m a d e . On t h e basis of d a t a

r e p o r t e d by coal p r o d u c e r s , A v e r i t t has e s t i m a t e d t h a t , as of J a n u a r y 1,

1 9 7 0 , t h e cumulative p a s t p r o d u c t i o n of 4.4 b i l l i o n t o n s of s t r i p - m i n e d

c o a l r e s u l t e d i n 2,450 s q u a r e m i l e s of d i s t u r b e d l a n d i n t h e U . S . 5 He

f u r t h e r estimates t h a t t h e mining of t h e remaining 128 b i l l i o n t o n s of

s t r i p p a b l e c o a l i n t h e 0 t o 150-foot-thick overburden c a t e g o r y would c r e a t e

 7

an area of d i s t u r b e d l a n d comprising 71,000 s q u a r e m i l e s . A t present coal

s t r i p - m i n i n g rates, roughly 100 square m i l e s of a d d i t i o n a l d i s t u r b e d l a n d

are b e i n g c r e a t e d each y e a r . W e must c o n s i d e r t h a t advanced earth-moving

machinery and changing economic c o n d i t i o n s w i l l probably make d e e p e r

d e p o s i t s a c c e s s i b l e t o s u r f a c e mining methods. This would expand t h e

s t r i p p a b l e c o a l r e s e r v e s and t h e t o t a l amount of f u t u r e l a n d damage.

The damage o f t e n extends w e l l beyond t h e boundaries o f t h e a c t u a l

mining a r e a s . I f , f o r example, mountains are s c a r r e d by contour mining,

t h e whole landscape is rendered l e s s a t t r a c t i v e . The d e s t r u c t i o n of

watersheds (catchment areas f r o m which stream w a t e r s are drawn) by

s i l t a t i o n and a c i d w a t e r run-off a l s o extends t h e harmful e f f e c t s of

strip-mining. (Acid w a t e r i s w a t e r c o n t a i n i n g s u l f u r i c a c i d produced by

weathering of s u l f u r - b e a r i n g m i n e r a l s . ) According t o a r e c e n t s t u d y ,

contamination caused by both deep and s u r f a c e mining has s u b s t a n t i a l l y

a l t e r e d t h e w a t e r q u a l i t y of some 10,500 m i l e s of s t r e a m s i n Appalachia

and a c i d d r a i n a g e s e r i o u s l y p o l l u t e s some 5,700 m i l e s of streams. A

r e c e n t s t u d y by t h e U . S . Department of t h e I n t e r i o r on t h e environmental

e f f e c t s of s t r i p - m i n i n g i n Cane Branch Basin, McCreary County, Kentucky,

showed a decrease i n the v a r i e t y and abundance of a q u a t i c l i f e downstream

f r o m t h e strip-mined areas .7 T h i s d e c r e a s e was caused by e r o s i o n and

a c i d w a t e r d r a i n a g e which e f f e c t i v e l y d e s t r o y e d t h e stream h a b i t a t .

Annual e r o s i o n l o s s e s f r o m f r e s h l y strip-mined areas i n Appalachia a r e as

high a s 27,000 t o n s p e r s q u a r e m i l e , o r up t o 1,000 times g r e a t e r t h a n f o r

undisturbed lands. L a n d s l i d e s , damage t o t i m b e r , and a s y e t unknown e f f e c t s

such as t h e s p r e a d of heavy m e t a l s o r c a r c i n o g e n i c m a t e r i a l s by l e a c h i n g

of t h e s p o i l during r a i n s can add t o t h e l i s t of p o s s i b l e o f f - s i t e damage.

 8

Strip-mining i s only now beginning on a l a r g e s c a l e i n t h e western

s t a t e s and t h e e x t e n t of damage i s n o t y e t c l e a r l y d e f i n e d f o r such

climates and t e r r a i n s . I n a d d i t i o n t o i n c r e a s i n g t h e s u s c e p t i b i l i t y of

t h e s e l a n d s t o wind and water e r o s i o n , s u r f a c e mining i n t h e s e m i d e s e r t

regions of t h e Southwest poses t h e danger of exposing h i g h l y s a l i n e

material t o t h e s u r f a c e . T h i s overburden m a t e r i a l , e n r i c h e d i n s a l t s

by t h e p e r c o l a t i o n of s u r f a c e water, i f brought t o t h e s u r f a c e , would

make it d i f f i c u l t t o e s t a b l i s h any k i n d of v e g e t a t i o n on t h e d i s t u r b e d

land. Before t h e environmental impact of s u r f a c e mining i n a r i d r e g i o n s

can be f u l l y a s s e s s e d , r e v e g e t a t i o n methods e f f e c t i v e i n r e g i o n s w i t h

low average r a i n f a l l must be developed, s o i l c o n d i t i o n s must be i n v e s t i -

g a t e d , and t h e groundwater movements m u s t be determined. (Groundwater

i s t h e w a t e r beneath t h e e a r t h ' s s u r f a c e , between s a t u r a t e d s o i l and r o c k ,

t h a t s u p p l i e s w e l l s and s p r i n g s . ) Much more s t u d y and r e s e a r c h i s needed.

However, it i s a l r e a d y c l e a r t h a t s t r i p - m i n i n g , whether it is conducted i n

Appalachia, i n t h e a r i d r e g i o n s of t h e Southwest, o r i n t h e h a r s h c l i m a t e

of t h e n o r t h e r n c o a l f i e l d s , can s e r i o u s l y a f f e c t t h e n a t u r a l e c o l o g i c a l

b a l a n c e of t h e r e g i o n .

2.1 C o s t s of U.S. S t r i p Mining

The t r u e economic and s o c i a l c o s t s a s s o c i a t e d w i t h t h e s u r f a c e mining

o f c o a l have n o t y e t been a d e q u a t e l y a s s e s s e d . Coal can be s t r i p - m i n e d a t

an average c o s t of about $1.50 p e r t o n less t h a n deep-mined c o a l , l a r g e l y

because t h e c o s t of adequate l a n d reclamation is n o t i n c l u d e d i n t h e

production costs.' F a i l u r e t o i n c l u d e r e c l a m a t i o n i n t h e mining c y c l e

g i v e s t h e i l l u s i o n of a g r e a t e r l a b o r p r o d u c t i v i t y t h a n is a c t u a l l y j u s t i -

fied. For a c o a l d e n s i t y of 1,800 t o n s p e r a c r e - f o o t and a c o a l recovery

 9

f a c t o r of 80 p e r c e n t , t h e y i e l d of a t y p i c a l t h r e e - f o o t - t h i c k Appalachian

seam i s about 4,300 t o n s per a c r e . On t h i s b a s i s , some $6,000 p e r a c r e

could t h e o r e t i c a l l y be s p e n t on l a n d r e c l a m a t i o n without d e s t r o y i n g t h e

c o m p e t i t i v e p o s i t i o n of strip-mined c o a l . I n W e s t Germany, t h e a c t u a l

c o s t s of r e s t o r i n g mined-out l a n d a r e a s t o f u l l a g r i c u l t u r a l p r o d u c t i v i t y

range from $3,000 t o $4,500 p e r a c r e . To t h e e x t e n t t h a t s t r i p - m i n i n g is

c a r r i e d o u t without subsequent r e s t o r a t i o n of t h e l a n d and r e p a i r of

o t h e r environmental damages, payment of t h e t r u e production c o s t s is

simply b e i n g d e f e r r e d .

The burden of e x t e r n a l c o s t s a s s o c i a t e d w i t h s t r i p c o a l p r o d u c t i o n

i s n o t f a i r l y borne by a l l consumers. I n some r e g i o n s of Appalachia,

approximately 40% of t h e maintenance budgets f o r s t a t e and county roads

is used t o r e p a i r damage caused by heavy c o a l - t r u c k t r a f f i c . ” Land made

w o r t h l e s s by s t r i p mining o p e r a t i o n s no l o n g e r s e r v e s as a t a x b a s e t o

p r o v i d e needed revenues f o r l o c a l community development. Floods and

l a n d s l i d e s , r e s u l t i n g d i r e c t l y from c o n d i t i o n s c r e a t e d by c o a l s u r f a c e

mining, d e s t r o y b o t h p u b l i c and p r i v a t e p r o p e r t y . Funds t h a t could

otherwise provide needed l o c a l s e r v i c e s a r e t h e r e b y d i v e r t e d t o r e p a i r

the damages. Where such c o n d i t i o n s p r e v a i l , t h e coal-producing l o c a l i t y

i s , i n e f f e c t , s u b s i d i z i n g t h e r e s t of t h e n a t i o n .

The consumption of c o a l f o r e l e c t r i c power g e n e r a t i o n i s expected

t o i n c r e a s e g r e a t l y d u r i n g t h e coming decades. P e r r y has e s t i m a t e d t h a t

t h e u s e of c o a l f o r t h i s purpose a l o n e w i l l reach some one b i l l i o n t o n s

a n n u a l l y by t h e y e a r 2000.11 T h i s would r e p r e s e n t n e a r l y a t h r e e f o l d

i n c r e a s e over p r e s e n t c o a l consumption r a t e s f o r e l e c t r i c power g e n e r a t i o n .

,
More and l a r g e r s t r i p mines may be expected. The problem of meeting t h e
 10

ever-growing energy demands of s o c i e t y w i t h o u t n e e d l e s s l y d e s t r o y i n g l a n d ,

w a t e r , and f o r e s t r e s o u r c e s must somehow be r e s o l v e d .

I n view of t h e e x t e n s i v e environmental damage a l r e a d y i n f l i c t e d by

c o a l s u r f a c e mining, and t h e a n t i c i p a t e d f u t u r e growth of t h e i n d u s t r y ,

the a d o p t i o n of sound m i n i n g and l a n d restoration p r a c t i c e s i s u r g e n t l y

needed. The environmental e f f e c t s of c o a l s u r f a c e mining are c l e a r l y

r e g i o n a l i n n a t u r e , e x t e n d i n g a c r o s s s t a t e b o u n d a r i e s , so t h a t it i s

d i f f i c u l t f o r t h e i n d i v i d u a l s t a t e s t o d e a l with t h e m e f f e c t i v e l y . For

t h i s r e a s o n , f e d e r a l mining and l a n d r e s t o r a t i o n s t a n d a r d s t h a t would

apply e q u a l l y t o a l l of t h e coal-producing s t a t e s seem h i g h l y d e s i r a b l e .

The n a t i o n a l concern o v e r environmental damage from c o a l p r o d u c t i o n is

evidenced by t h e number of surface-mining r e g u l a t i o n b i l l s c u r r e n t l y b e f o r e

Congress.

3. THE IMpOFO?ANcE O F LIGNITE I N WEST CZRMANY

The consumption of r a w materials i n t h e world is growing r a p i d l y , and

t h e development of new s o u r c e s of supply i s i n c r e a s i n g l y d i f f i c u l t and more

expensive. Many i n d u s t r i a l n a t i o n s , t h e r e f o r e , are h e i g h t e n i n g t h e i r e f f o r t s

t o a c q u i r e a stable, broadly-based s o u r c e of v i t a l r a w materials and f u e l s .

This i n t e n s i f i c a t i o n i n c l u d e s n o t o n l y s e c u r i n g supply s o u r c e s f r o m abroad,

b u t where p o s s i b l e , d e v o t i n g g r e a t e r a t t e n t i o n t o t h e development of

domestic r e s o u r c e s . The F e d e r a l Republic of Germany is f o r t u n a t e t o

possess l a r g e r e s e r v e s of brown-coal ( l i g n i t e ) t o s e r v e i n e l e c t r i c power

p r o d u c t i o n and p o s s i b l y as a r a w material f o r producing s y n t h e t i c f u e l s .

T h e t o t a l brown c o a l r e s e r v e s of West Germany are e s t i m a t e d t o be about

60 b i l l i o n t o n s . Of t h e s e , some 55 b i l l i o n t o n s are l o c a t e d i n t h e
 11

ORNL-DWG 72- 3571

SURFACE

The Rhineland l i g n i t e f i e l d , some 2500 square k i l o m e t e r s i n area, l i e s

n e a r t h e Dutch b o r d e r i n f l a t , l e v e l country. The remaining r e s e r v e s
o f brown-coal a r e e s t i m a t e d t o amount t o f i f t y - f i v e b i l l i o n m e t r i c t o n s ,
o f which e i g h t t o t e n b i l l i o n t o n s can be recovered by present-day mining
methods .
 12

Rhineland c o a l f i e l d s a l o n e , making them t h e l a r g e s t continuous d e p o s i t

of l i g n i t e i n Europe. (The l i g n i t e r e s e r v e s of t h e world are e s t i m a t e d

t o amount t o some 2,100 b i l l i o n t o n s , as compared t o 155 b i l l i o n t o n s f o r

a l l of Europe.) Using present-day mining t e c h n i q u e s , approximately e i g h t

t o t e n b i l l i o n t o n s of Rhineland l i g n i t e l i e c l o s e enough t o t h e s u r f a c e f o r

economical recovery. When w e c o n s i d e r t h a t improved mining methods w i l l

almost c e r t a i n l y be developed i n t h e f u t u r e , i t is c l e a r t h a t brown-coal

w i l l c o n t i n u e t o p l a y a v i t a l r o l e i n the W e s t German economy f a r i n t o t h e

next c e n t u r y .

T a b l e 1. 1968 Production of L i g n i t e (Thousand s h o r t t o n s ) l 2

Rank Country Production

1 E a s t Germany 272,491

2 U.S.S.R. 154,323

3 F e d e r a l Republic of Germany 111,902

4 Czechoslovakia 82,006

- United S t a t e s 4,817

- World T o t a l 812,799

T h e p r o d u c t i o n of brown c o a l has long been an i m p o r t a n t i n d u s t r y i n

Germany. Table 1 shows t h a t , even t o d a y , t h e t e r r i t o r y comprising pre-war

Germany accounts f o r n e a r l y h a l f of the t o t a l world l i g n i t e p r o d u c t i o n and

t h a t the F e d e r a l Republic of Germany is s u r p a s s e d i n l i g n i t e mining o n l y by

E a s t Gemany and t h e S o v i e t Union. The beginnings of brown-coal mining i n

the Rhineland reach f a r back i n t o the 18th c e n t u r y , with an annual p r o d u c t i o n

of about 70,000 t o n s i n the y e a r 1816. L i g n i t e p r o d u c t i o n f i r s t .exceeded

 i3

100,000 t o n s i n t h e y e a r 1833 and reached an annual r a t e of 189,000 t o n s i n

1859 b e f o r e competition from bituminous c o a l from t h e Ruhr, made p o s s i b l e

by t h e advent of r a i l r o a d s , caused t h e brown-coal i n d u s t r y t o d e c l i n e .

L i g n i t e , because of i t s high w a t e r c o n t e n t (50 - 60%) and low c a l o r i f i c

v a l u e (3,500 BTU/lb), could n o t be t r a n s p o r t e d economically o v e r long

d i s t a n c e s and, i n s t e a d , had t o be used l o c a l l y . This s i t u a t i o n w a s changed

d r a s t i c a l l y , i n 1877, when t h e f i r s t l i g n i t e b r i q u e t t e f a c t o r y went

i n t o o p e r a t i o n i n Briihl, n e a r Cologne. From 1880 t o 1905, t h e annual

l i g n i t e p r o d u c t i o n i n Germany soared from 128,000 t o n s t o 7,931,000 t o n s ,

and t h e b r i q u e t t e p r o d u c t i o n r o s e from 128,000 t o n s t o 2,000,000 t o n s .

The manufacture of smokeless b r i q u e t t e s f o r domestic h e a t i n g reached

a high i n 1955, when 61% of t h e t o t a l l i g n i t e p r o d u c t i o n w a s used f o r

t h i s purpose. Today, t h e b r i q u e t t e market consumes o n l y a b o u t 23%

of t h e brown c o a l , w i t h t h e r e s t being burned i n thermal power p l a n t s .

The t o t a l W e s t German p r o d u c t i o n of brown c o a l i n 1970 amounted t o

some 108 m i l l i o n t o n s , w i t h 92.6 m i l l i o n t o n s b e i n g mined i n t h e Rhineland

alone. About 81 m i l l i o n tons of l i g n i t e were burned i n t h e r m a l power

s t a t i o n s t o produce 60 b i l l i o n k i l o w a t t - h o u r s of e l e c t r i c i t y ; 24.7 m i l l i o n

t o n s were used f o r b r i q u e t t e manufacture; and t h e remainder w a s used f o r

miscellaneous purposes. I n view of t h e d e c l i n i n g market f o r b r i q u e t t e s ,

new a p p l i c a t i o n s €or brown c o a l a r e a l r e a d y under s t u d y . It is believed

t h a t f a v o r a b l e p h y s i c a l p r o p e r t i e s of brown c o a l , such as high chemical

r e a c t i v i t y , p o r o s i t y , and low s u l f u r c o n t e n t , may make it s u i t a b l e f o r a

number of d i f f e r e n t p r o d u c t i o n p r o c e s s e s . Some of t h e s e p o t e n t i a l

p r o c e s s e s are t h e r e d u c t i o n of i r o n o r e , t h e g a s i f i c a t i o n of l i g n i t e

u s i n g n u c l e a r p r o c e s s h e a t , and t h e p r o d u c t i o n of m e t a l l u r g i c a l coke.
 14

Today, 38% of a l l p o w e r g e n e r a t e d i n German thermal e l e c t r i c power

s t a t i o n s comes from l i g n i t e - f u e l e d p l a n t s . The p r e s e n t and p o t e n t i a l u s e s

of brown-coal, both a s an energy s o u r c e and as a r a w material, a s s u r e

t h a t it w i l l e v e n t u a l l y be mined t o d e p l e t i o n . I n Germany, t h e need t o

t r e a t e f f e c t i v e l y t h e environmental consequences of brown-coal mining has

been f u l l y recognized. Furthermore, t h i s n e c e s s i t y w i l l remain even i f

brown c o a l i s e v e n t u a l l y r e p l a c e d by an a l t e r n a t i v e f u e l f o r e l e c t r i c

power p r o d u c t i o n .

The v i t a l r o l e of l i g n i t e i n t h e German economy can be s e e n from thk

i n t e n s i v e e f f o r t s which have been made t o modernize t h e mines. This

modernization p r o c e s s has r e q u i r e d an enormous f i n a n c i a l investment, more

t h a n one b i l l i o n d o l l a r s s i n c e t h e end of World W a r 11, and has l e d t o a

c o n s o l i d a t i o n of t h e brown-coal mining i n d u s t r y . The many shallow s u r f a c e

mines which were formerly common i n t h e Rhineland have been g r a d u a l l y

r e p l a c e d by l a r g e r , more e f f i c i e n t open-pit mines. (While t h e number of

a c t i v e mines i n t h e Rhineland decreased from 23 i n 1950 t o 6 i n 1970, t h e

annual p r o d u c t i o n of l i g n i t e i n c r e a s e d from 64 t o 93 m i l l i o n t o n s . ) The

post-war l i g n i t e i n d u s t r y i n t h e Rhineland w a s s h a r e d by f o u r major

companies: Rheinische Braunkohle A .G., Roddergrube A . G . , Braunkohle-industrie

A.G. (BIAG), and Neurath A.G. I n 1959, t h e s e companies merged t o form t h e

present-day Rheinische Braunkohlenwerke A . G . , w h i c h today dominates t h e

brown-coal mining i n d u s t r y . T h i s s i n g l e company, a s u b s i d i a r y of Germany's

l a r g e s t e l e c t r i c power u t i l i t y - t h e Rheinisch W e s t f a l i s c h e E l e k t r i z i t a t s -

werke A.G. (RWE) - employs n e a r l y 16,000 workers and produces 85 p e r c e n t of

t h e German l i g n i t e . I t s l a r g e s i z e and many r e s o u r c e s have helped t h e

Rheinische Braunkohlenwerke A.G. t o i n s t i t u t e enlightened land reclamation

p r a c t i c e s which have r e c e i v e d worldwide r e c o g n i t i o n . Table 2 p r o v i d e s

 15

d a t a which show t h e magnitude of t h e company's mining o p e r a t i o n s .

T a b l e 2. S a l i e n t S t a t i s t i c s on t h e Operations of t h e Rheinische
Braunkohlenwerke A. G.

1969 1970

S p o i l m a t e r i a l excavated (1000 m 3 ) 184 ,691 185 ,787

Raw l i g n i t e produced (1000 t o n s ) 91 ,327 92 ,631
L i g n i t e used f o r b r i q u e t t e s (1000 t o n s ) 24 ,700
L i g n i t e s o l d t o i n d u s t r y (1000 t o n s ) 1,300
L i g n i t e burned i n power s t a t i o n s (1000 t o n s ) 66 ,431
B r i q u e t t e s manufactured (1000 t o n s ) 8,830 8,497
E l e c t r i c power produced ( m i l l i o n kwh) 48 ,400
Power from minemouth p l a n t s ( m i l l i o n kWh) 2,094 2 ,033
T o t a l number of employees 1 5 ,902 1 5 ,699
Average p r o d u c t i v i t y ( t o n s p e r man-day) 59.18 63.94
Clay p r o d u c t i o n (1000 t o n s ) 151 203
Sand and g r a v e l p r o d u c t i o n (1000 t o n s ) 59 3 627

4. BROWN-COAL M I N I N G TECHNOLOGY

4.1 Open-Pit Mines

The Rhineland brown-coal f i e l d l i e s i n f l a t , p l a i n s country i n t h e

1 , 0 0 0 s q u a r e mile t r i a n g u l a r a r e a formed by t h e c i t i e s of Aachen, Cologne,

and Mijnchen-Gladbach. The l i g n i t e i s d e p o s i t e d i n h i g h l y f a u l t e d seams

t h a t a r e from 65 t o 350 f e e t t h i c k , with v a r y i n g overburden up t o 650 f e e t .

The c o a l bed l i e s on a s l i g h t l y - f o l d e d , i n c l i n e d p l a n e , with t h e s h a l l o w e r

seams l o c a t e d a t t h e base of t h e t r i a n g l e , i n t h e v i c i n i t y o f Cologne and

Aachen. Mining began i n shallow s u r f a c e mines n e a r Cologne and has moved

s t e a d i l y northward, becoming p r o g r e s s i v e l y more complicated as t h e deeper

c o a l d e p o s i t s were reached. P r i o r t o World War 11, t h e mining of l i g n i t e

i n t h e Rhineland a r e a w a s confined t o s i t e s where t h e brown-coal l a y

s u f f i c i e n t l y c l o s e t o t h e s u r f a c e ( < 1 0 0 f t . ) t h a t conventional s u r f a c e

mining equipment could be used. Since t h e number of such s u i t a b l e l o c a t i o n s

 16

w a s l i m i t e d and would be exhausted i n the f o r e s e e a b l e f u t u r e , it w a s clear

t h a t new mining methods needed t o be developed t o e x p l o i t t h e deeper l i g n i t e

d e p s it s .
Attempts t o develop s u i t a b l e new mining t e c h n i q u e s began i n 1938 when

tests were made t o e x p l o r e t h e p o s s i b i l i t y of u s i n g deep mines t o e x t r a c t

the lignite. These experiments w e r e d e l a y e d by t h e w a r and w e r e f i n a l l y

abandoned i n 1953 when it became a p p a r e n t t h a t t h e h i g h groundwater l e v e l

of t h e r e g i o n and the u n c o n s o l i d a t e d n a t u r e of t h e overburden p r e c l u d e d t h e

l a r g e - s c a l e i n t r o d u c t i o n of deep mines on an economical b a s i s . A t about t h i s

time , however, modern , massive e x c a v a t i n g machines w e r e developed t h a t made

t h e deeper brown-coal seams a c c e s s i b l e f o r t h e f i r s t t i m e t o s u r f a c e mining

techniques. Because the c a p a c i t y and e f f i c i e n c y of t h e s e bucket-wheel

t y p e e x c a v a t o r s were s i g n i f i c a n t l y g r e a t e r t h a n t h a t of t h e older equipment,

it became p o s s i b l e t o d e s i g n new o p e n - p i t l i g n i t e mines on a s c a l e n o t

possible heretofore. Thus, i n t h e y e a r s 1953 t o 1955, a new epoch i n t h e

h i s t o r y of t h e Rhineland brown-coal i n d u s t r y began. The r e s u l t i s such

mines as t h e Fortuna-Garsdorf o p e n - p i t mine l o c a t e d n e a r Bergheim. This

mine i s t h e l a r g e s t m a t e r i a l handling o p e r a t i o n on e a r t h , n e a r l y t w i c e as

l a r g e as i t s c l o s e s t competitor - t h e Kennecott Copper Bingham p i t i n U t a h .

I n 1970, a t o t a l of 86.8 m i l l i o n c u b i c y a r d s of s p o i l material, t o g e t h e r

w i t h 36.2 m i l l i o n m e t r i c t o n s of l i g n i t e , w a s t a k e n from t h e Fortuna-

Garsdorf open-pit mine a l o n e .

4.2 Mechanization and Automation of t h e L i g n i t e Mines

The modernization of t h e Rhineland brown-coal mines, beginning w i t h

t h e i n t r o d u c t i o n of g i a n t wheel-excavators i n 1955, h a s g r e a t l y i n c r e a s e d

p r o d u c t i v i t y and helped t o make brown-coal t h e c h e a p e s t s o u r c e ( n e x t t o

h y d r o e l e c t r i c power) of energy i n Europe. The p r o c e s s of mechanization

 17

Spreader machines are a t work forming l e v e l t e r r a c e s on t h e r e f i l l

s i d e of t h e Fortuna-Garsdorf open p i t mine. The c o o l i n g towers of
t h e mine-mouth power p l a n t a r e v i s i b l e i n t h e background.

The b u c k e t wheel e x c a v a t o r s c u r r e n t l y i n use weigh 7,600 t o n s and are

230 f e e t h i g h and 656 f e e t long. The machines have a r e a c h of about
165 f e e t and a d i g g i n g c a p a c i t y of 130,000 cubic y a r d s per day. The
e x c a v a t o r shown above i s s t r i p p i n g o f f overburden t o expose t h e l i g n i t e
l y i n g beneath .
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d i d n o t end with the massive, new d i g g i n g machines. A transportation

system, c a p a b l e of matching t h e prodigous c a p a c i t y of t h e wheel e x c a v a t o r s ,

had t o be developed t o h a u l away t h e s p o i l material and l i g n i t e from t h e

mines. S i n c e f u l l r e s t o r a t i o n of t h e l a n d d i s t u r b e d by t h e mining opera-

t i o n s w a s planned, g i a n t s p r e a d e r machines - s i m i l a r t o t h e wheel e x c a v a t o r s -

were designed and b u i l t t o s p r e a d the overburden from a c t i v e mines back i n t o

mined-out p i t s . I n a d d i t i o n , because the d e p t h of t h e t h e new s u r f a c e mines

extends w e l l below t h e groundwater l e v e l , methods had t o be developed t o

p r e v e n t f l o o d i n g of t h e p i t s . That t h e s e problems w e r e s o l v e d s u c c e s s f u l l y

i s shown by t h e f a c t t h a t l i g n i t e has n o t o n l y h e l d i t s p o s i t i o n w i t h respect

t o c o m p e t i t i v e f o s s i l f u e l s , b u t has a c t u a l l y expanded i t s market.

4.2.1 Bucket Wheel Excavators

P r e s e n t l y , each of t h e l a r g e , o p e n - p i t , brown-coal mines i s

equipped w i t h s e v e r a l wheel e x c a v a t o r s f o r s t r i p p i n g o f f t h e overburden and

extracting the lignite. A s i n g l e machine c o s t s up t o t e n m i l l i o n d o l l a r s

and consumes as much as 10.4 MW of e l e c t r i c a l power i n o p e r a t i o n . Exclud-

i n g maintenance p e r s o n n e l , only two o p e r a t o r s are needed t o o p e r a t e t h e

huge excavator. The l i g n i t e o r l o o s e overburden is c a r r i e d by conveyor

b e l t from t h e e x c a v a t o r wheel t o the d i s c h a r g e boom, where i t f a l l s i n t o

waiting railroad cars. Because of t h e i r a b i l i t y t o e x c a v a t e s e l e c t i v e l y

and d e l i v e r t h e l o o s e overburden, l i g n i t e , o r t o p s o i l t o a separate, inter-

f a c i n g t r a n s p o r t a t i o n system, t h e wheel e x c a v a t o r is e s p e c i a l l y s u i t a b l e

f o r use i n areas where l a n d r e c l a m a t i o n i s planned. A n advanced wheel

e x c a v a t o r w i t h more t h a n t w i c e t h e d i g g i n g c a p a c i t y of t h e p r e s e n t

g e n e r a t i o n machines has been o r d e r e d by t h e Rheinische Braunkohlenwerke

A.G. mining company and i s scheduled t o begin o p e r a t i o n i n the Fortuna-

Garsdorf mine i n l a t e 1975. When b u i l t , t h e new wheel-on-boom machine

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w i l l be t h e l a r g e s t mobile l a n d d e v i c e i n t h e world - weighing 1 3 , 0 0 0

m e t r i c t o n s and s t a n d i n g 269 f e e t high and 704 f e e t long. I t s 85-foot-

d i a m e t e r e x c a v a t o r wheel equipped with 18 s e p a r a t e b u c k e t s , each having

a volume of 7.2 c u b i c y a r d s , w i l l g i v e t h e new e x c a v a t o r a d i g g i n g c a p a c i t y

of more than 260,000 c u b i c y a r d s p e r day.

4.2.2 T r a n s p o r t a t i o n of Bulk Materials

T r a n s p o r t i n g t h e massive amounts of s p o i l m a t e r i a l and l i g n i t e

f r o m t h e mine is accomplished with a s p e c i a l l y designed system c o n s i s t i n g

of conveyor b e l t s , heavy-duty t r a i n s , and s l u r r y p i p e l i n e s . Much of t h i s

equipment i s automated o r remotely c o n t r o l l e d , t h e r e b y c o n t r i b u t i n g t o t h e

high p r o d u c t i v i t y of t h e o v e r a l l mining o p e r a t i o n s . Seven-foot-wide

conveyor b e l t s moving on s t e e l r o l l e r s a t speeds up t o 1 5 m i l e s p e r hour

a r e used t o t r a n s p o r t t h e l i g n i t e o u t of t h e mine p i t . These conveyor

b e l t s can be i n s t a l l e d i n a s t r a i g h t l i n e and o p e r a t e s a t i s f a c t o r . i l y on

r e l a t i v e l y s t e e p i n c l i n e s , t h u s e l i m i n a t i n g ramps which would be r e q u i r e d

i f t r a i n s were employed i n t h e p i t s . The t o t a l i n s t a l l e d l e n g t h of t h e

conveyor b e l t network comes t o about 70 m i l e s . The b e l t s are used t o

h a u l b o t h l i g n i t e and s p o i l m a t e r i a l . A c r a w l e r , equipped with s p e c i a l

h a n d l i n g d e v i c e s , is used t o move t h e skid-mounted conveyor b e l t sideways

as mining p r o g r e s s e s . This can be done very r a p i d l y , w i t h l i t t l e i n t e r -

r u p t i o n of t h e mining o p e r a t i o n s .

Bulk m a t e r i a l from t h e mines which must be t r a n s p o r t e d o v e r long

d i s t a n c e s i s hauled on a company-owned r a i l w a y s y s t e m . The r a i l network

c o n s i s t s of 310 m i l e s of t r a c k s connecting t h e a c t i v e brown-coal mines,

t h e mined-out a r e a s undergoing r e s t o r a t i o n , t h e b r i q u e t t e f a c t o r i e s , and

t h e power g e n e r a t i n g s t a t i o n s . The s p o i l m a t e r i a l is hauled i n e i g h t - a x l e -

gondolas, each w i t h a c a p a c i t y of 125 c u b i c yards and a g r o s s weight of 240

 20

metric tons. The gondolas can be emptied i n a m a t t e r o f seconds by a

h y d r a u l i c system which t i p s the c a r s sideways. Raw l i g n i t e i s t r a n s p o r t e d

i n four-axle, ninety-ton r a i l c a r s . S p e c i a l l y p r o f i l e d , heavy-duty r a i l s ,

w i t h a l i n e a r d e n s i t y of 43 pounds p e r f o o t , have been d e s i g n e d t o

accommodate the enormous, 30-ton-per-axle l o a d s which are encountered.

E l e c t r i c locomotives weighing up t o 139 t o n s are used t o p u l l l o a d s of as

much as 2,000 t o n s . T h i s p r i v a t e r a i l r o a d network c a r r i e s a l a r g e r annual

tonnage ( n o t ton-miles) t h a n t h e whole German F e d e r a l Railway system.

4.3 Ground and S u r f a c e Water C o n t r o l

To e x t r a c t t h e l i g n i t e u s i n g s u r f a c e mining t e c h n i q u e s , it is n e c e s s a r y

t o lower t h e groundwater l e v e l t o p r e v e n t f l o o d i n g of t h e mine p i t s . This

i s accomplished by pumping w a t e r from some 1850 deep w e l l s which have been

d r i l l e d i n t h e E r f t r i v e r b a s i n t o an average d e p t h of n e a r l y 600 f t .

Submersible motor pumps, some n e a r l y 33 f e e t long and weighing more t h a n

1 2 t o n s , pump w a t e r a t rates as high as 33 t o n s p e r minute. A t the present

t i m e , 1100 w e l l s i n continuous o p e r a t i o n p r o v i d e s u f f i c i e n t w a t e r removal

c a p a c i t y f o r t h e s i x s u r f a c e mines i n t h e E r f t r e g i o n . On t h e a v e r a g e ,

1 4 t o n s o f w a t e r must be pumped o u t of the ground f o r each t o n Qf l i g n i t e

mined.

T h e w a t e r f r o m t h e deep w e l l s i s d i s c h a r g e d i n t o t h e E r f t , I n d e , and

Merzbach waterways and i n t o a special d r a i n a g e c a n a l which connects t h e

c o a l f i e l d s t o t h e Rhine r i v e r . The c a n a l can a l s o be used t o p r o v i d e

supplementary f l o o d c o n t r o l b e n e f i t s t o t h e r e g i o n n o r t h o f Cologne.

During p e r i o d s of high-water, a pumping s t a t i o n can d i v e r t 10 c u b i c m e t e r s

per second from t h e E r f t i n t o the Rhine r i v e r . The Rheinische Braunkohlen-

werke A.G. mining company i s also s t u d y i n g t h e p o s s i b i l i t y of c o n v e r t i n g

some of t h e huge mine p i t s i n t o a f r e s h w a t e r reservoir t o improve t h e

 21

supply and q u a l i t y of w a t e r f o r i n d u s t r y i n t h e r e g i o n . Thus, t h e brown

c o a l mining a c t i v i t i e s p r o v i d e unforeseen community b e n e f i t s .

5. LAND REHABILITATION

5.1 The E x t e n t and Costs of Land Reclamation

All l i g n i t e mining o p e r a t i o n s t o d a t e have a f f e c t e d less t h a n one

t e n t h of t h e 620,000 a c r e Rhineland brown-coal a r e a . The t o t a l l a n d a r e a

d i s t u r b e d by brown-coal s u r f a c e mining from t h e t u r n of t h e c e n t u r y t o

January 1, 1969, amounts t o 36,750 a c r e s . O f t h i s , 16,480 a c r e s a r e n o t

y e t r e s t o r e d , r e p r e s e n t i n g e i t h e r a c t i v e mine s i t e s o r d e p l e t e d p i t s

c u r r e n t l y being reclaimed. The remainder, 20,270 a c r e s , has been r e s t o r e d

f o r f o r e s t r y (10,290 a c r e s ) , a g r i c u l t u r e (7,390 a c r e s ) , and a r t i f i c i a l

l a k e s (2,590 a c r e s ) . R e s t o r i n g l a n d t o f u l l a g r i c u l t u r a l p r o d u c t i v i t y is

t h e most expensive t y p e of r e c l a m a t i o n , c o s t i n g from $3,000 t o $4,500 p e r

acre. I n r e c e n t t i m e s , r i s i n g l a n d p r i c e s and lower r e c l a m a t i o n c o s t s ,

due t o improved, more e f f i c i e n t methods, have r e s u l t e d i n a r r i v i n g a t an

economic break-even p o i n t . Today, t h e market v a l u e of t h e r e s t o r e d

farmland compares f a v o r a b l y with t h e e x p e n d i t u r e s f o r r e c l a m a t i o n . In

t h e United S t a t e s , t h e c o s t of f u l l l a n d r e s t o r a t i o n would, i n most c a s e s ,

g r e a t l y exceed t h e value of t h e l a n d . However, it is i n t e r e s t i n g t o n o t e

t h a t l a n d r e c l a m a t i o n w a s r e q u i r e d i n Germany long b e f o r e it became

marginally p r o f i t a b l e .

5.1.1 A Panoramic V i e w of Land Reclamation

The s t e a d y , northward p r o g r e s s i o n of mining o p e r a t i o n s d u r i n g

t h e p a s t f i f t y y e a r s o c c u r r e d as t h e shallow, s o u t h e r n liqnite d e p o s i t s

were g r a d u a l l y exhausted. Because o f t h i s , today t h e v a r i o u s s t a g e s of

t h e mining and l a n d r e s t o r a t i o n c y c l e a r e open t o view, s p r e a d o u t i n

 22

sequential order. A t the a c t i v e mines i n t h e n o r t h e r n and c e n t r a l r e g i o n s

of t h e l i g n i t e f i e l d , the g i a n t bucket-wheel e x c a v a t o r s s e l e c t i v e l y

s t r i p o f f and s a v e the t o p l a y e r of l o e s s . (Loess is an extremely f e r t i l e

t y p e o f loam which covers m o s t of the Rhineland r e g i o n and has g r a d u a l l y

come t o be r e g a r d e d as an important mineral i n i t s own r i g h t . ) The

e x c a v a t o r s n e x t p e e l o f f t h i c k l a y e r s of sand, g r a v e l , and c l a y overburden

b e f o r e e x t r a c t i n g t h e l o o s e , black l a y e r s of exposed l i g n i t e . Some

commercial e x p l o i t a t i o n of t h e sand and g r a v e l has begun, t h u s t u r n i n g

t h e e x t r a c t i o n of brown-coal i n t o a t o t a l mining o p e r a t i o n .

F u r t h e r southward, n e a r Quadrath-Ichendorf and B e r r e n r a t h ,

t h e huge s u r f a c e mines have been exhausted of l i g n i t e , and r e s t o r a t i o n

of t h e l a n d area is underway. Brought i n by t r a i n s from t h e n o r t h , t h e

d i s c a r d e d s p o i l material is f i l l e d back i n t o t h e mined-out p i t s by mammoth

s p r e a d e r machines and l e v e l e d o f f by b u l l d o z e r s . The l e v e l e d a r e a s a r e

subdivided i n t o 5- t o 10-acre t r a c t s , o r p o l d e r s , by s i x - f o o t - h i g h d i k e s

of loam. These p o l d e r s w i l l e v e n t u a l l y be f i l l e d w i t h a loess s l u r r y ,

w h i c h leaves behind a one- t o two-meter-thick t o p l a y e r of l o e s s when it

dries. S t i l l f u r t h e r t o t h e s o u t h , n e a r B e r r e n r a t h , f i e l d s of g r a i n and

hay can be seen t h r i v i n g on r e s t o r e d l a n d which i s less t h a n 5 y e a r s o l d .

The sequence i n t h e f o r e s t e d areas is s i m i l a r : To t h e n o r t h are newly

p l a n t e d s t a n d s of young t r e e s , and i n t h e s o u t h are forested areas reclaimed

f i f t y y e a r s ago. The l a t t e r are n e a r l y i n d i s t i n g u i s h a b l e f r o m n a t u r a l

f o r e s t s and a r e s u p e r i o r t o the s t a n d s of s c r u b t i m b e r which o r i g i n a l l y

grew t h e r e .

5.1.2 > M

The German l a n d r e s t o r a t i o n program a c t u a l l y begins , with the

 23

p r e p a r a t i o n of d e t a i l e d p l a n s f o r t h e r e l o c a t i o n of p o p u l a t e d s e t t l e m e n t s

and f o r t h e r e s t o r a t i o n of t h e l a n d , y e a r s b e f o r e t h e f i r s t s h o v e l of

brown c o a l i s mined. Land-use p a t t e r n s are proposed i n advance, and t h e

new l F d s c a p e i s designed a c c o r d i n g l y - t h e topography, t h e d r a i n a g e

system, l a k e s , and t h e d e s i g n a t i o n of areas t o be r e s t o r e d f o r f o r e s t r y

and f o r a g r i c u l t u r e . This comprehensive e a r l y p l a n n i n g e n a b l e s t h e

mining o p e r a t i o n s t o be c o o r d i n a t e d w i t h c o n c u r r e n t l a n d r e s t o r a t i o n work.

New towns f o r t h e d i s p l a c e d people are designed according t o m d e r n urban

requirements and are more compact than t h e former, unplanned s e t t l e m e n t s .

The b a s i c r e s e t t l e m e n t c o s t s a r e borne by t h e mining company w i t h l o c a l and

s t a t e governments p r o v i d i n g supplementary funds t o pay f o r t h e i n c r e m e n t a l

c o s t s of b e t t e r s c h o o l s , sewer systems, and o t h e r community s e r v i c e s t h a n

t h o s e which e x i s t e d a t t h e former town s i t e .

T h i s comprehensive approach r e f l e c t s an acceptance of t h e

f a c t t h a t s u r f a c e mining a f f e c t s n o t o n l y coal, b u t a l s o trees, b u i l d i n g s ,

people, and t h e l a n d i t s e l f . I n Germany, t h e S t a t e of North Rhine

Westphalia and t h e l i g n i t e mining i n d u s t r y have a c c e p t e d t h e c h a l l e n g e

of f i n d i n g a c c e p t a b l e s o l u t i o n s t o t h e e n t i r e s e t of s o c i a l and environ-

m e n t a l problems created by brown-coal s u r f a c e mining. T h i s approach

makes i t p o s s i b l e t o t r e a t the o v e r a l l p r o b l e m a s a whole r a t h e r t h a n

d e a l i n g w i t h s e p a r a t e a s p e c t s of the p r o b l e m on a p i e c e m e a l b a s i s . The

o l d concept of mining, which appears t o be p r e v a l e n t i n t h e United S t a t e s ,

h o l d s t h a t it c o n s i s t s merely of e x t r a c t i n g m i n e r a l s from t h e ground i n

t h e q u i c k e s t , most "economical" manner. I n t h e i n t e g r a t e d concept, the

q u a l i f i c a t i o n i s added t h a t t h i s must be done i n a way c o n s i s t e n t w i t h

t h e needs of s o c i e t y as a whole.
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5.2 F o r e s t s and Lakes

The r e s t o r a t i o n of brown-coal mining l a n d s began i n t h e Rhineland

some f i f t y y e a r s ago. Today, e x t e n s i v e t r a c t s o f both f i r s t and second

g e n e r a t i o n forests (and some t h i r t y - n i n e lakes of v a r y i n g s i z e ) can be

seen i n t h e area. H i s t o r i c a l l y , t h e f o r e s t l a n d r e c l a m a t i o n program

d i v i d e s n a t u r a l l y i n t o t h r e e main p e r i o d s . These a r e t h e "greening"

a c t i o n of t h e 1 9 2 0 ' ~t h~e e x t e n s i v e p l a n t i n g of p o p l a r s and alders a f t e r

t h e second world w a r , and t h e c u r r e n t phase of r e f o r e s t a t i o n which began

about 1958. T h e c u r r e n t program i s d i s t i n g u i s h e d by t h e p l a n t i n g of

commercially v a l u a b l e trees , with some p o p l a r s p l a n t e d merely t o p r o v i d e

a measure of p r o t e c t i o n a g a i n s t t h e weather. The p r e s e n t p l a n t i n g program

is a l s o concerned w i t h r e p l a n t i n g areas which d i d n o t t a k e w e l l i n e a r l i e r

a c t i o n s and t h e p l a n t i n g of t r e e s and shrubs on s l o p e s t o reduce e r o s i o n .

The p l a n t i n g o f commercial t r e e s d i r e c t l y - w i t h o u t f i r s t having t o

p r e p a r e t h e way by e s t a b l i s h i n g hardy b u t w o r t h l e s s quick-growth t r e e

types - has been made p o s s i b l e by a p p l y i n g a loess-improved t o p s o i l t o

t h e areas which are t o be r e f o r e s t e d . I n s t e a d of simply g r a d i n g t h e s p o i l

banks and p l a n t i n g them t o p i o n e e r t r e e s , t h e y apply a s p e c i a l l a y e r of

l o e s s and overburden mixture i n depths of 3 t o 5 m e t e r s . T h i s mixture

forms a l o o s e , porous s o i l w i t h good p h y s i c a l p r o p e r t i e s f o r t r e e growth.

Because of t h e presence of l i m e s t o n e i n t h e l o e s s , t h e pH v a l u e of t h e s o i l

ranges from 6.8 t o 7.4. A t f i r s t , t h e humus and n i t r o g e n are a t r a t h e r l o w

l e v e l s , b u t this c o n d i t i o n is improved by sowing l u p i n e a t t h e t i m e of , or

p r i o r t o , tree planting. L a t e r , f a l l e n l e a v e s and o r g a n i c d e b r i s r e s u l t -

i n g from f o r e s t t h i n n i n g a c t i v i t i e s p r o v i d e a r a p i d b u i l d u p of t h e humus

content.
 25

The Rheinische Braunkohlenwerke A.G. mining company i s c u r r e n t l y

l o o k i n g a f t e r some 16,000 a c r e s of f o r e s t s , extending from Bonn i n t h e

south t o Grevenbroich i n t h e n o r t h . During 1970, some 670 a c r e s o f l a n d

w e r e reforested - three million trees planted - and 9,500 c u b i c meters

of wood h a r v e s t e d . The mining company has e s t a b l i s h e d a F o r e s t r y D i v i s i o n ,

w i t h a s t a f f of about 40 f o r e s t e r s and t e c h n i c i a n s , t o p l a n and s u p e r v i s e

these sizeable operations. During peak p e r i o d s i n t h e p l a n t i n g s e a s o n ,

t h e mining company supplements i t s f o r e s t r y d i v i s i o n s t a f f by c o n t r a c t i n g

with l o c a l firms.

During t h e p a s t decade, much of t h e e f f o r t of t h e F o r e s t r y D i v i s i o n

h a s been devoted t o e s t a b l i s h i n g t h e l a r g e f o r e s t s i n t h e s o u t h e r n

p a r t of t h e c o a l f i e l d . The focus i s g r a d u a l l y s h i f t i n g as mining opera-

t i o n s c o n t i n u e t o move northward - i n t o a r e a s p r i m a r i l y used f o r a g r i c u l t u r a l

purposes. I n t h e f u t u r e , a c t i v i t i e s of the F o r e s t r y D i v i s i o n w i l l c e n t e r

i n c r e a s i n g l y on f o r e s t maintenance, t h i n n i n g , and h a r v e s t i n g . A special

problem t o be d e a l t with i s t h e upgrading of n e a r l y 5,000 a c r e s o f poplars

and a l d e r s p l a n t e d d u r i n g t h e second r e f o r e s t a t i o n p e r i o d . Extensive

t h i n n i n g and p l a n t i n g of more v a l u a b l e t r e e s a r e needed. More r e c e n t l y ,

t h e r e i s a n o t a b l e d i v e r s i t y i n t h e k i n d s o f trees p l a n t e d . The t r e e t y p e s

s e l e c t e d f o r a p a r t i c u l a r l o c a t i o n a r e chosen i n accordance w i t h s o i l

c o n d i t i o n s and t h e expected exposure t o sun and wind. T o promote e f f i c i e n c y

and economy i n h a r v e s t i n g , t h e t r e e mixture i n a given s e c t i o n i s l i m i t e d

t o one o r two t y p e s , b u t t h e mixture v a r i e s s t r o n g l y from s e c t i o n t o s e c t i o n .

I n a l l , t h e r e f o r e s t a t i o n program employs twenty-two d i f f e r e n t types

of deciduous trees ( i n c l u d i n g basswood, o a k , a s h , beech, w i l l o w , a l d e r ,

l o c u s t , p o p l a r , e l m , and m a p l e ) , e l e v e n t y p e s of c o n i f e r s ( i n c l u d i n g p i n e ,
 26

f i r , and hemlock) , and e i g h t e e n d i f f e r e n t v a r i e t i e s of s h r u b s , such a s

h a z e l n u t , dogwood, mountain a s h , and w i l d r o s e s . T h i s mixture of t r e e s

and shrubs s e r v e s t o provide n o t o n l y an e c o l o g i c a l l y sound f o r e s t , b u t

a l s o t h e d i v e r s i t y appealing i n a r e c r e a t i o n a l f o r e s t . F o r e s t s i n Germany

have t r a d i t i o n a l l y been used f o r r e c r e a t i o n by t h e g e n e r a l p u b l i c a s w e l l

a s f o r timber p r o d u c t i o n . I n t h e p a s t , most p u b l i c and many p r i v a t e f o r e s t s

w e r e open t o a l l f o r b i k i n g , h i k i n g , p i c n i c k i n g , and o t h e r r e c r e a t i o n a l

uses. I n r e c e n t t i m e s , t h e a c c e s s i b i l i t y of f o r e s t s f o r r e l a x a t i o n and

enjoyment has been extended by t h e 1969 F e d e r a l F o r e s t r y Law which

-
r e q u i r e s t h a t a l l p r i v a t e f o r e s t s be open t o t h e p u b l i c . Commonly, a l l

a g r i c u l t u r a l l a n d s as w e l l are open t o people wishing t o t a k e walks along

f i e l d p a t h s and farm roads.

5.3 Winning New Farmland

5.3.1 The R a t i o n a l e - For t h e F u t u r e

I n 1970 , t h e Rheinische Braunkohlenwerke A . G . mining company

r e s t o r e d some 470 a c r e s of mining wasteland t o a g r i c u l t u r a l p r o d u c t i v i t y

and a n a d d i t i o n a l 670 a c r e s a s f o r e s t l a n d . I n view of t h e h i g h c o s t s of

farmland r e c l a m a t i o n , it i s i n t e r e s t i n g t o examine t h e c o n s i d e r a t i o n s

which have l e d t o t h e adoption of t h i s p o l i c y . Before improved reclama-

t i o n t e c h n i q u e s were i n t r o d u c e d i n 1960, t h e l a n d r e s t o r a t i o n c o s t s were

f a r h i g h e r t h a n t h e worth of t h e reclaimed land. Even today t h e r e a r e

few economic i n c e n t i v e s f o r r e h a b i l i t a t i n g t h e l a n d . I t is d i f f i c u l t f o r

German a g r i c u l t u r e t o compete with neighboring European Common Market

c o u n t r i e s , and i n many i n s t a n c e s d i r e c t government subsidy i s r e q u i r e d

t o keep it v i a b l e . P r i c e - s u p p o r t programs of t h e f e d e r a l government have

 27

r e s u l t e d i n t h e accumulation of huge s t o c k p i l e s of farm s u r p l u s , e . g . ,

t h e " b u t t e r mountain" which has been a c q u i r e d a t p u b l i c expense. Further-

more, t h e s u r f a c e mining i n d u s t r y is n o t even t h e p r i n c i p a l d e s t r o y e r o f

farmland i n North Rhine Westphalia. While t h e brown c o a l mining i n d u s t r y

consumes about 600 a c r e s of farmland a n n u a l l y , some 300 a c r e s of farmland

a r e l o s t --
each week t o c i t y growth, highway c o n s t r u c t i o n , and i n d u s t r i a l

expansion. These c o n s i d e r a t i o n s c l e a r l y demonstrate t h a t t h e d e c i s i o n t o

r e c l a i m mined-out a r e a s as farmland w a s n o t a t a l l a "foregone c o n c l u s i o n . "

The i n c e n t i v e s f o r r e s t o r i n g mining a r e a s t o a g r i c u l t u r a l p r o -

d u c t i v i t y i n t h e Rhineland a r e d i v e r s e . F i r s t , t h e brown-coal deposits are

l o c a t e d i n t h e r i c h e s t , m s t f e r t i l e farm country of Germany - which i s

f a v o r a b l y s i t u a t e d n e a r t h e l a r g e p o p u l a t i o n c e n t e r s of t h e Ruhr v a l l e y .

Thus, a ready, nearby market is on hand f o r t h e a g r i c u l t u r a l produce,

affording s i g n i f i c a n t savings i n t r a n s p o r t a t i o n c o s t s . Second, t h e problem

of d i s p o s s e s s i n g and r e s e t t l i n g farmers who a r e i n t h e p a t h of th'e mining

o p e r a t i o n s i s g r e a t l y eased by having r e s t o r e d l a n d a v a i l a b l e as an

acceptable s u b s t i t u t e . Many of t h e s e farmers would be l o a t h e t o p a r t

w i t h long e s t a b l i s h e d family farms w e r e n o t s a t i s f a c t o r y r e s t o r e d a r e a s ,

f u l l y commensurable i n f e r t i l i t y and p r o d u c t i v i t y w i t h t h e i r former h o l d i n g s ,

a v a i l a b l e as compensation. Thus, t h e farmland r e s t o r a t i o n p o l i c y aids

g r e a t l y i n reducing s o c i a l and p o l i t i c a l t e n s i o n s and c o n t r i b u t e s t o p u b l i c

acceptance of t h e temporary d i s r u p t i o n s caused by t h e mining i n d u s t r y .

Probably t h e most compelling reason f o r farmland r e s t o r a t i o n , however, i s

the p r e v a i l i n g c o n v i c t i o n t h a t t o allow v a l u a b l e s o i l t o be i r r e v o c a b l y

d e s t r o y e d by a s t r i c t l y temporary l a n d u s e - mining - would represent

extreme f o l l y . Saving the l o e s s has become one of t h e h i g h e s t p r i o r i t y

 28

i t e m s of l a n d p l a n n i n g i n t h e Rhineland, r e f l e c t i n g a b a s i c l a n d e t h i c

which cannot be e v a l u a t e d o r e x p l a i n e d i n p u r e l y economic terms.

5.3.2 S t r u c t u r i n g the New Landscape

The s p o i l material and s o i l from a c t i v e mines i s t r a n s p o r t e d

t o t h e s i t e s e l e c t e d f o r r e s t o r a t i o n and is used t o f i l l i n t h e deep p i t s

l e f t by e a r l i e r mining o p e r a t i o n s . There, a completely new l a n d s c a p e ,

w i t h a topography s p e c i f i e d by p r i o r d e s i g n , g r a d u a l l y takes shape.

Mammoth s p r e a d e r machines, q u i t e s i m i l a r t o t h e wheel e x c a v a t o r s used

i n e x t r a c t i n g t h e brown-coal, a r e used t o d i s t r i b u t e t h e s p o i l m a t e r i a l

evenly o v e r t h e a r e a being reclaimed. Each s p r e a d e r weighs 2,300 t o n s and

r e q u i r e s only two o p e r a t o r s . A s i n g l e machine is c a p a b l e of h a n d l i n g up

t o 200,000 c u b i c y a r d s of material d a i l y . The t r a n s p o r t a t i o n network of

conveyor b e l t s and t r a i n s on heavy d u t y tracks d e s c r i b e d e a r l i e r b r i n g s a

s t e a d y stream of s p o i l m a t e r i a l t o t h e s p r e a d e r s , e n a b l i n g continuous

operation. Ordinary b u l l d o z e r s are used t o l e v e l o f f and compact t h e

overburden i n p r e p a r a t i o n f o r a p p l y i n g t h e t o p l a y e r o f l o e s s .

Before t h e l o e s s is a p p l i e d , t h e s u r f a c e of t h e prepared a r e a i s

d e l i b e r a t e l y furrowed, o r deeply roughened, t o p r e v e n t t h e formation of a

c l e a r i n t e r f a c e between t h e t o p l a y e r of l o e s s and t h e substrata. In the

p a s t , t h e same s p r e a d e r machines used t o d i s t r i b u t e t h e s p o i l m a t e r i a l

were a l s o used t o apply t h e l o e s s . Again, f i n a l l e v e l i n g o f t h e s u r f a c e

i s performed with b u l l d o z e r s , which produce some u n d e s i r a b l e compacting

of t h e t o p l a y e r t o depths of about one f o o t . Harrow d i s k s are employed

t o break up t h e compacted l o e s s b e f o r e p l a n t i n g . I n r e c e n t t i m e s , an

a l t e r n a t i v e method of a p p l y i n g t h e t o p l a y e r of l o e s s has been developed.

A f t e r t h e spoil material has been d i s t r i b u t e d , t h e s u r f a c e i s d i v i d e d i n t o

 29

- - .- - "-.PrlOTO 1011-72
* I > _R.

-.

._

.__*

Mined l a n d n e a r B e r r e n r a t h , W e s t Germany i s being r e s t o r e d t o a g r i c u l t u r a l

productivity. Above, a s p r e a d e r machine d i s t r i b u t e s l o o s e s p o i l material
which i s hauled i n by r a i l and conveyor b e l t . I n t h e lower foreground, a
t r a c t of l a n d has been subdivided i n t o p o l d e r s i n p r e p a r a t i o n f o r applying
t o p s o i l by t h e s l u r r y technique. A t the r i g h t , the roadbed of a f u t u r e
expressway has been l e f t u n f i l l e d by the s p r e a d e r machines, i n accordance
w i t h long-range r e g i o n a l development p l a n s .

G i a h t s p r e a d e r machines, s i m i l a r i n appearance t o t h e bucket wheel

e x c a v a t o r s , a r e used t o spread s p o i l material on t h e d i s t u r b e d land.
I n some c a s e s , t h e machines a r e a l s o employed t o spread o u t t h e f i n a l
l a y e r of t o p s o i l .
 30

s m a l l d i k e d a r e a s , or p o l d e r s . The d i k e s c o n s i s t simply of l o o s e l y p i l e d

l o e s s and a r e about two y a r d s i n h e i g h t . Loess and w a t e r a r e mixed i n a

one-to-one r a t i o and pumped through p i p e s i n t o t h e p o l d e r s , which a r e

f r o m five t o ten acres i n size. The a p p l i c a t i o n of s l u r r y i s c a r r i e d o u t

i n s u c c e s s i v e s t e p s ; the p o l d e r is flooded w i t h s l u r r y t o a d e p t h of about

two f e e t and allowed t o d r y b e f o r e more s l u r r y is a p p l i e d . This p r o c e s s

is repeated u n t i l t h e f i n a l six-foot-thick t o p l a y e r o f l o e s s has been

obtained. Normally, a month or two i s r e q u i r e d f o r t h e d r y i n g p r o c e s s ,

b u t i n unfavorable weather up t o e i g h t months may be r e q u i r e d .

The s l u r r y technique of a p p l y i n g l o e s s , adapted from methods

developed i n Holland t o r e c l a i m l a n d from t h e s e a , i s f a s t e r and more eco-

nomical t h a n mechanical methods. Furthermore, i t has been found t o possess

other superior a t t r i b u t e s as well. For example, t h e pore volume of l a n d

prepared by the s l u r r y method is h i g h e r t h a n t h a t of e i t h e r v i r g i n s o i l o r

mechanically p r e p a r e d l a n d . During t h e p a s t s e v e r a l y e a r s , t h e method

has found i n c r e a s i n g a p p l i c a t i o n i n Germany, and much p r a c t i c a l e x p e r i e n c e

has been gained. To a l a r g e e x t e n t , t h e e a s e w i t h which t h e s l u r r y is

p r e p a r e d depends upon t h e c o n d i t i o n of t h e l o e s s . I f the loess is strongly

w e t t e d , it does not r e a d i l y form a suspension and l o e s s - t o - w a t e r r a t i o s o f

1-to-3 may be r e q u i r e d . On t h e o t h e r hand, i f t h e l o e s s w a s mined and

s t o r e d d u r i n g r e l a t i v e l y d r y weather, r a t i o s as low a s 1-to-0.7 suffice.

The s l u r r y d i s c h a r g e p i p e must be r e l o c a t e d s e v e r a l t i m e s d u r i n g t h e f i l l i n g

of a p o l d e r t o p r e v e n t t h e formation of zones w i t h d i f f e r e n t loess p a r t i c l e

sizes. During t h e f i r s t s l u r r y a p p l i c a t i o n t h e l o e s s s e t t l e s o u t and

p a r t l y s e a l s t h e bottom. I n subsequent a p p l i c a t i o n s , l e s s water p e n e t r a t e s

 31

The r i c h t o p - l a y e r of l o e s s i s s e l e c t i v e l y s t r i p p e d o f f and saved a t t h e

a c t i v e mine s i t e s . Heavy d u t y t r a i n s t r a n s p o r t t h e l o e s s t o nearby land
a r e a s undergoing reclamation.

-72

1 /'

-. --
A l o a d i n g machine scoops t h e l o e s s o u t of t h e d i t c h and loads i t o n t o
a conveyor b e l t l e a d i n g t o t h e s l u r r y s t a t i o n .
 32

The l o e s s e n t e r s t h e s l u r r y s t a t i o n where it i s mixed w i t h w a t e r and

pumped t o o u t l y i n g f i e l d s .
- -- - . - -2
^^

The slurry gushes o u t of a p i p e i n t o s p e c i a l l y prepared diked a r e a s , o r

p o l d e r s . A f t e r drying o u t , it l e a v e s behind a 6-foot-thick t o p l a y e r of
loess.
 33

i n t o t h e subsoil and consequently t h e d r y i n g p r o c e s s can be g r e a t l y speeded

by simply d r a i n i n g o f f t h e w a t e r a f t e r t h e l o e s s has s e t t l e d .

Once t h e l a n d h a s r e c e i v e d t h e t o p l a y e r of loess, it i s

i m p o r t a n t t o e s t a b l i s h a v e g e t a t i o n cover as q u i c k l y a s p o s s i b l e . Such a

cover p r e v e n t s hardening of t h e ground from heavy r a i n s and s i l t a t i o n and

makes it d i f f i c u l t f o r u n d e s i r a b l e weeds and o t h e r p l a n t growth t o g a i n a

foothold. Working l a n d which h a s been formed by t h e s l u r r y method i s

i n i t i a l l y d i f f i c u l t because of i t s s o f t n e s s . A t f i r s t , t h e l a n d cannot

s u s t a i n t h e heavy l o a d s of normal farm machinery, and special l i g h t - w e i g h t

equipment must be used t o work t h e ground and SOW t h e f i r s t c r o p of a l f a l f a .

Once e s t a b l i s h e d , t h e v e g e t a t i o n assists i n d r y i n g o u t t h e p o l d e r ,

and t h e r o o t system p e n e t r a t e s deeply i n t o t h e f r e s h land. I f reclamation

o c c u r s i n l a t e f a l l o r e a r l y w i n t e r so t h a t c r o p s cannot be p l a n t e d a t

once, s p e c i a l measures must be t a k e n t o p r e v e n t s u r f a c e hardening due t o

winter precipitation. Experience h a s shown t h a t t h e l a n d should be deeply

furrowed a f t e r t h e l o e s s is a p p l i e d . The ground t h e n t e n d s t o f r e e z e i n

rough clumps d u r i n g the w i n t e r , promoting t h e d r y i n g p r o c e s s and a l l o w i n g

e a r l y spring planting.

5.3.3 I n i t i a l C u l t i v a t i o n and I n t e r i m Management

The newly reclaimed farmland i s r e t a i n e d by t h e company f o r an

i n t e r i m five-year period. During t h i s t i m e it i s s u b j e c t e d t o i n t e n s e

management by a g r i c u l t u r a l e x p e r t s of t h e brown-coal mining company. The

l a n d improvement methods are based on e x p e r i e n c e and t h e r e s u l t s of

s c i e n t i f i c r e s e a r c h which h a s i n p a r t been c a r r i e d o u t i n c o o p e r a t i o n w i t h

t h e Agronomy I n s t i t u t e of t h e U n i v e r s i t y of Bonn. The f i e l d work i s con-

d u c t e d by t r a i n e d p e r s o n n e l , working from c e n t r a l l y l o c a t e d company farms,

 34

t o a s s u r e t h a t uniform methods of s o i l p r e p a r a t i o n and f e r t i l i z a t i o n a r e

used. The company farms a l s o s e r v e f o r conducting d i v e r s e experiments i n

s o i l p h y s i c s and a g r i c u l t u r a l chemistry. A primary o b j e c t i v e of t h e

i n t e r i m management program i s t o b u i l d up t h e humus and n u t r i e n t s i n t h e

soil. The n u t r i e n t l e v e l can be r e g a i n e d r a t h e r q u i c k l y by t h e u s e of

f e r t i l i z e r , o r by p l a n t i n g leguminous crops such a s a l f a l f a o r l u p i n e .

R e s t o r i n g t h e humus l e v e l which p r e v a i l e d b e f o r e mining, however, i s a

much slower p r o c e s s .

The humus c o n t e n t of t h e newly r e s t o r e d l a n d averages about 0 . 5 p e r

c e n t while t h a t of u n d i s t u r b e d a r e a s i n t h e same v i c i n i t y ranges from 1 . 3

t o 1.8 p e r c e n t . For t h i s r e a s o n , a l f a l f a i s p r i z e d n o t o n l y f o r i t s

a b i l i t y t o f i x n i t r o g e n , b u t a l s o because of i t s deep r o o t system which

c o n t r i b u t e s t o t h e build-up of humus when t h e p l a n t is h a r v e s t e d . Research

has shown t h a t normal crop r o t a t i o n i n c r e a s e s t h e humus l e v e l by o n l y 0.04

t o 0.05 percent annually. T h e r e f o r e , o t h e r methods a r e employed t o

speed t h e p r o c e s s of s o i l c o n d i t i o n i n g . The s t u b b l e from w i n t e r r y e , which

follows t h e a l f a l f a c r o p , i s d i s k e d and plowed under. Sewer s l u d g e , com-

p o s t e d garbage, and o t h e r o r g a n i c wastes have been used e x p e r i m e n t a l l y t o

i n c r e a s e t h e humus l e v e l . Rape, a p l a n t of t h e mustard f a m i l y used f o r

f o d d e r , i s sometimes sown a f t e r t h e g r a i n s have been h a r v e s t e d and t h e

s t r a w and s t u b b l e d i s k e d i n t o t h e s o i l . The p l a n t i s f e r t i l i z e d t o a c h i e v e

r a p i d growth and t h e p l a n t f o l i a g e i s t h e n plowed under as a form of g r e e n

manure. S i n c e r a p e p o s s e s s e s a f l e x i b l e p l a n t i n g d a t e and i s r e l a t i v e l y

i n e x p e n s i v e , t h e method has proved a t t r a c t i v e .

The reclaimed l a n d r e q u i r e s h i g h e r t h a n u s u a l a p p l i c a t i o n s of f e r t i l i -

z e r f o r a t l e a s t the f i r s t t e n y e a r s of c u l t i v a t i o n . Experiments have

 35

shown t h a t t h e o p t i m a l amounts on t h e newly r e s t o r e d l a n d a r e : 135 t o 180

pounds of P2O5 and K 2 0 p e r a c r e , and 180 pounds of n i t r o g e n p e r a c r e .

C o n t r o l l e d experiments were c a r r i e d o u t by t h e Agronomy I n s t i t u t e of t h e

U n i v e r s i t y o f Bonn t o determine the crop y i e l d s a t t a i n a b l e on r e s t o r e d

mining l a n d s d u r i n g t h e f i v e y e a r p e r i o d of i n t e r i m management. Experimen-

t a l p l o t s of l a n d which had been r e s t o r e d by t h e s l u r r y t e c h n i q u e were

s e l e c t e d n e a r Inden, Germany and c o n t r o l experiments were conducted on

nearby, similar l a n d which had not been d i s t u r b e d by s u r f a c e mining.

The r e s t o r e d l a n d w a s f i r s t c o n d i t i o n e d by p l a n t i n g a crop o f a l f a l f a .

I n succeeding y e a r s , i d e n t i c a l crops were p l a n t e d on t h e r e s t o r e d and

t h e u n d i s t u r b e d land. The r e s u l t s are shown i n Table 3.

Table 3 . C.omparison of Crop Y i e l d s on Restored Land and Undisturbed

Land Over a Five Year Period.*

Year Crop Yield (pounds p e r a c r e )

Old Land New Land

1962 Winter Rye 3822 4108

1963 Rape ( d r y m a s s ) 3349 3456

Oats 3411 3367

1964 Sugar Beets

Roots 44025 54652
% Sugar 16.7 16.7
Foliage 34291 43489

1965 Sugar Beets

Roots 46168 46168
% Sugar 15.4 16.5
Foliage 65010 60278

1965 Winter Wheat 5537 5572

1965 Winter Wheat 4688 5019

*Number of pounds t o t h e bushel: r y e (561, wheat (601, and o a t s ( 3 2 ) .

 36

6. SOCIAL AND ECONOMIC IMPROVEMENTS

6.1 Agriculture

The p r i n c i p l e of primogeniture - o r t h e e x c l u s i v e r i g h t of t h e e l d e s t

son t o i n h e r i t his f a t h e r ' s l a n d - i s not embodied i n t h e i n h e r i t a n c e laws

of North Rhine Westphalia. A s a r e s u l t , once-large farms have g r a d u a l l y

become s p l i n t e r e d and subdivided o v e r t h e c e n t u r i e s , as t h e p r o p e r t y p a s s e d

from one g e n e r a t i o n t o t h e n e x t . Today, it is not uncommon f o r a farmer t o

own, o r t o have t o l e a s e , numerous s m a l l p a r c e l s of l a n d which may be widely

s e p a r a t e d from one a n o t h e r . Such a land-holdings p a t t e r n i s h i g h l y i n e f f i -

c i e n t because i t p r e c l u d e s t h e a p p l i c a t i o n of modern, mechanized methods of

farming. Consequently, a c o n s o l i d a t i o n of t h e many s m a l l h o l d i n g s t o form

l a r g e r , economically v i a b l e u n i t s has long been a prime o b j e c t i v e of

governmental planning. Obviously, t h e h a n d l i n g of such a s e n s i t i v e i s s u e

r e q u i r e s much c a r e , i f t h e reform i s t o be accomplished i n an e q u i t a b l e

manner. Hence, i n s e t t l e d a r e a s , t h e l a n d c o n s o l i d a t i o n program must proceed

slowly and c a u t i o u s l y t o avoid a r o u s i n g d i s s a t i s f a c t i o n . On t h e o t h e r hand,

i n t h e r e s e t t l e m e n t of reclaimed brown-coal l a n d s , i t w a s r e c o g n i z e d a t t h e

o n s e t t h a t a unique o p p o r t u n i t y e x i s t e d f o r q u i c k l y accomplishing t h e

d e s ired land consolidation.

Resettlement c o n s i s t s of two d i s t i n c t l y s e p a r a t e t r a n s a c t i o n s : the

i n d e m n i f i c a t i o n of t h e farmer f o r p r o p e r t y c o n f i s c a t e d and t h e purchase of

new, r e c l a i m e d l a n d from t h e mining company. I n t h e s a l e of r e s t o r e d l a n d ,

t h e mining company f a v o r s buyers who were d i s l o c a t e d by t h e mining opera-

tions. The p u r c h a s e r i s g r a n t e d a $190 p e r a c r e rebate by t h e mining

company t o compensate f o r t h e e x t r a f e r t i l i z e r and s e e d i n g c o s t s i n i t i a l l y

r e q u i r e d i n c u l t i v a t i n g reclaimed l a n d . A n i n t r i c a t e method has been

 37

worked o u t t o e s t i m a t e f a i r l y t h e worth of farms c o n f i s c a t e d by t h e mining

company. S t a t e a s s e s s o r s a p p r a i s e t h e p r o p e r t y and judge t h e v a l u e of t h e

l a n d n o t only on t h e b a s i s of i t s area, but a l s o according t o i t s f e r t i l i t y

as e s t a b l i s h e d by p a s t r e c o r d s of c r o p p r o d u c t i v i t y . The farm b u i l d i n g s

and such e x t e r n a l improvements as woods, o r c h a r d s , and w e l l s a r e a p p r a i s e d

by t a k i n g i n t o account t h e i r c u r r e n t replacement c o s t and t h e i r p r e s e n t

d e p r e c i a t i o n based on age. The v a l u e of each i t e m is added t o o b t a i n t h e

f i n a l s e t t l e m e n t sum. I f t h e farmer is d i s s a t i s f i e d w i t h t h e n e g o t i a t i o n s ,

he may appeal through t h e c o u r t s . However, t h i s happens i n less t h a n one

o u t of s i x c a s e s . The s e t t l e m e n t payment, supplemented by s a v i n g s and l o a n s ,

e n a b l e s t h e farmer t o purchase new l a n d and b u i l d i n g s . How h i g h t h e r e p l a c e -

ment c o s t s may be is r e v e a l e d by a r e c e n t s u r v e y , which found t h a t t h e t o t a l

investment i n b u i l d i n g s on an average farm i n North Rhine Westphalia

amounts t o about $70,000.

The n e a r l y 3,000 acre a g r i c u l t u r a l community which i s c u r r e n t l y being

developed on reclaimed l a n d n e a r B e r r e n r a t h , i n t h e s o u t h e r n s e c t o r of t h e

brown c o a l f i e l d , i l l u s t r a t e s t h e new socio-economic s t r u c t u r e which i s

being a t t a i n e d . The new community, now n e a r l y o n e - t h i r d completed, w i l l

e v e n t u a l l y comprise some 2 7 s e p a r a t e farms, each w i t h 4 0 t o 80 a c r e s i n a

s i n g l e t r a c t of l a n d . T h e community i s being b u i l t according t o p l a n s

s p e c i f i e d by t h e winning e n t r y t o a landscape d e s i g n c o n t e s t sponsored by

t h e s t a t e of North Rhine Westphalia. The p l a n envisages 70 P e r c e n t of

t h e l a n d b e i n g used f o r c u l t i v a t i o n , 20 p e r c e n t f o r f o r e s t e d t r a c t s , and

t h e r e s t f o r v i l l a g e growth and i n d u s t r y . The farmers a r e c l u s t e r e d

t o g e t h e r i n s m a l l hamlets of about s i x t o e i g h t f a m i l i e s each. Contrary

t o u s u a l German p r a c t i c e , t h e farm d w e l l i n g s a r e l o c a t e d amidst t h e

 38

The above house and farmyard f a c i l i t i e s a r e c o n s t r u c t e d on reclaimed

l a n d n e a r B e r r e n r a t h , W e s t Germany.

A farmer i n s p e c t s c r o p s of s u g a r b e e t s and p o t a t o e s on r e s t o r e d land

n e a r Quadrath-Ichendorf. The c r o p s a r e growing on f e r t i l e , r e s t o r e d
l a n d which i s less t h a n f i v e y e a r s o l d .
 39

I n t h e foreground above, hay i s h a r v e s t e d i n W e s t Germany on reclaimed

land less t h a n two y e a r s old. I n t h e background, t h e a d j a c e n t brown-
c o a l mining o p e r a t i o n continues.
_..^..* .-* 7,

A r e s i d e n t i a l s t r e e t i n Neu-Mgdrath, West Germany, which was b u i.It t o

r e p l a c e an o l d e r v i l l a g e caught up i n t h e p a t h of t h e brown-coal
mining o p e r a t i o n s .
 40

c u l t i v a t e d f i e l d s , reducing unnecessary t r a v e l i n g t i m e . The hamlet

p a t t e r n reduces t h e i s o l a t i o n of an i n d i v i d u a l farm family and makes it

p o s s i b l e f o r s e v e r a l farmers t o p o o l r e s o u r c e s i n purchasing expensive

farm equipment s i n c e t h e machinery can t h e n be used communally. The s i z e

of t h e farms, t h e spacious modern b u i l d i n g s , and t h e economies a f f o r d e d

by c o o p e r a t i v e endeaver make it l i k e l y t h a t t h e B e r r e n r a t h a g r i c u l t u r a l

community w i l l remain economically r e s i l i e n t f o r many decades t o come.

6.2 Villages

Whole v i l l a g e s , caught up i n t h e p a t h of t h e brown c o a l mining

o p e r a t i o n s , must be t o r n down and r e l o c a t e d . Thus, t h e mining juggernaut

uproots people and i n s t i t u t i o n s a s w e l l a s t h e landscape i t s e l f . The

number of people evacuated from t h e i r homes and r e s e t t l e d i n f u l l y new

l o c a t i o n s reached a t o t a l of 1 9 , 5 5 2 a t t h e beginning of 1 9 7 1 and i s

expected t o grow t o 30,000 by t h e end of t h i s c e n t u r y . In a l l , nearly

5,000 homes, farms, and p l a c e s of b u s i n e s s have been f o r c e d t o y i e l d

t o t h e brown-coal i n d u s t r y and move elsewhere. Moving an e n t i r e v i l l a g e

r e q u i r e s e x t e n s i v e p r e p a r a t i o n s and t a k e s a r e l a t i v e l y l o n g time. For

t h i s r e a s o n , t h e d e c i s i o n must be reached and made known w e l l i n advance

of t h e planned s t a r t of mining. Most of t h e v i l l a g e s which have been

r e l o c a t e d a r e f a i r l y s m a l l i n s i z e , with a p o p u l a t i o n of about 350 t o

2,000 i n h a b i t a n t s . I n some few c a s e s , p a r t i c u l a r v i l l a g e s have been

s p a r e d because of t h e i r h i s t o r i c i n t e r e s t o r because t h e y a r e l o c a t e d

c l o s e t o t h e edge of t h e brown c o a l f i e l d .

The v i l l a g e r s p a r t i c i p a t e d i r e c t l y i n s e l e c t i n g a new town s i t e ,

choosing one from a dozen o r so p o s s i b i l i t i e s which have been p r e s e n t e d

t o them. A l l of t h e s i t e s b e i n g c o n s i d e r e d have p r e v i o u s l y been approved

 41

by t h e r e g i o n a l planning commission. P a s t e x p e r i e n c e has shown t h a t t h e

v i l l a g e r s prefer t o move en masse, r e t a i n i n g some p o r t i o n of t h e community

identity. T h i s p r a c t i c e t e n d s t o avoid e x c e s s i v e s o c i a l upheaval and t h e

c r e a t i o n of a c o n d i t i o n of r o o t l e s s n e s s . The v i l l a g e may simply be

r e c o n s t r u c t e d a t a n o t h e r s i t e , o r t h e community may d e c i d e t o j o i n a n o t h e r

a l r e a d y e x i s t i n g town. The l a t t e r i s d e s i r a b l e because t h e connecting

a r t e r i e s of t r a n s p o r t a t i o n a l r e a d y e x i s t , and t h e c o n s o l i d a t e d p o p u l a t i o n

p a t t e r n which r e s u l t s makes i t p o s s i b l e f o r t h e new, merged community t o

a f f o r d improved p u b l i c s e r v i c e s . The new c o r n u n i t y i n v a r i a b l y p r o v i d e s

b e t t e r s c h o o l s , p a r k s , sports f a c i l i t i e s , and playgrounds t h a n t h e o l d one.

Because of u n s a t i s f a c t o r y c o n d i t i o n s i n the o l d v i l l a g e , t h e r e s e t t l e m e n t

i n many c a s e s amounts t o n e a r l y a complete urban renewal a c t i o n .

Mining company r e p r e s e n t a t i v e s n e g o t i a t e d i r e c t l y w i t h t h e i n d i v i d u a l

v i l l a g e r s t o determine a f a i r s e t t l e m e n t payment f o r t h e c o n f i s c a t e d

property. The money p a i d by t h e mining company e n a b l e s t h e v i l l a g e r t o

r e p l a c e h i s home a t t h e new town s i t e . G e n e r a l l y t h e new homes are

s u b s t a n t i a l l y improved - l a r g e r t h a n b e f o r e , and with c e n t r a l h e a t i n g and

indoor plumbing. The added improvements a r e p a i d f o r p r i v a t e l y , n o t by

t h e mining company. The new v i l l a g e i s designed according t o modern

p r i n c i p l e s by p r o f e s s i o n a l a r c h i t e c t s and p l a n n e r s commissioned by t h e

town c o u n c i l . By-pass roads s e p a r a t e t h e r e s i d e n t i a l s e c t i o n from areas

of heavy t r a f f i c , and more space i s a l l o t e d f o r playgrounds, b a l l parks

and k i n d e r g a r t e n s . The b u s i n e s s e s are c e n t r a l l y l o c a t e d ; t h e v i l l a g e

is provided with a sewer system, more p u b l i c g r e e n areas, and is g e n e r a l l y

m o r e compact and e f f i c i e n t t h a n t h e former one. Given t h i s type o f

c h o i c e , t h e v i l l a g e r s a p p a r e n t l y p r e f e r t o trade t h e p i c t u r e s q u e n e s s o f
 42

t h e i r o l d towns f o r a new environment w i t h more modern conveniences.

A s o c i o l o g i c a l survey of s o m e r e s e t t l e d communities r e v e a l s t h a t

t h e end r e s u l t has been g e n e r a l l y s a t i s f a c t o r y . According t o t h e s u r v e y ,

85 p e r c e n t of t h e r e s e t t l e d people a r e h a p p i e r i n t h e i r new homes, and

57 p e r c e n t l i k e w i s e p r e f e r t h e new l o c a t i o n of t h e town. Some 83 p e r -

c e n t of t h o s e i n t e r v i e w e d b e l i e v e t h a t t h e advantages outweigh t h e d i s -

advantages i n r e s e t t l e m e n t . T h i s does n o t imply, however, t h a t t h e

r e s e t t l e m e n t proceeds w i t h o u t a c e r t a i n quota of worry and concern. The

t y p i c a l evacuee e x p e r i e n c e s f e e l i n g s of a n x i e t y about his f u t u r e j o b ,

income, t h e new s c h o o l and community accommodations, his s o c i a l p o s i t i o n

i n t h e new community, and t h e unavoidable problems involved i n c o n s t r u c t i n g

a new house. On t h e p l u s s i d e , however, he g a i n s t h e f o l l o w i n g :

1. He r e c e i v e s a d e s i r a b l e b u i l d i n g l o t l o c a t e d on an improved

r e s i d e n t i a l s t r e e t away from a r e a s of heavy t r a f f i c .

2. H i s modern, new home is equipped with c e n t r a l h e a t i n g and

indoor plumbing and is c o n s i d e r a b l y more s p a c i o u s , - nearly one-third

l a r g e r t h a n his former d w e l l i n g .

3. H i s new house is worth more, w i l l l a s t l o n g e r , and has lower

maintenance c o s t s t h a n h i s o l d one.

4. I n b u i l d i n g a new home, he r e c e i v e s s u b s t a n t i a l federal t a x

advantages which are provided i n Germany t o encourage t h e c o n s t r u c t i o n

of r e s i d e n t i a l housing.

6.3 Recreation

The r e c u l t i v a t i o n of mined l a n d s f u r n i s h e s a unique o p p o r t u n i t y t o

s c u l p t u r e t h e new landscape t o meet t h e r e c r e a t i o n a l needs of t h e people

as w e l l as t o s e r v e t h e i n t e r e s t s of commerce, i n d u s t r y , and a g r i c u l t u r e .
The growing p o p u l a t i o n and changing l i f e s t y l e s i n Germany have combined

t o create an unprecedented demand f o r o u t d o o r r e c r e a t i o n a l f a c i l i t i e s a t

t h e same time t h a t e v e r g r e a t e r amounts o f l a n d are b e i n g consumed f o r

highways, c i t i e s , i n d u s t r y , and m i l i t a r y u s e s . For t h i s r e a s o n , l a n d

r e c l a m a t i o n i n the Rhineland brown-coal f i e l d s is planned i n such a way as

t o p r o v i d e f o r m u l t i p l e l a n d usage. The f o r e s t s a r e p l a n t e d n o t o n l y t o

meet t h e commercial need f o r lumber p r o d u c t i o n , b u t a l s o t o provide

r e s t f u l s e t t i n g s f o r weekend r e l a x a t i o n . The a g r i c u l t u r a l landscape as

w e l l i s prized f o r its p o ten tial recreational value. Trees and hedges are

p l a n t e d by t h e mining company on reclaimed farmland t o d i v i d e t h e f i e l d s and

p r o t e c t t h e l a n d a g a i n s t m o i s t u r e loss from a c t i o n o f t h e sun and wind.

These windbreaks and groves of trees a m i d s t t h e c u l t i v a t e d f i e l d s p r o v i d e

a s c e n i c v a r i e t y which a t t r a c t s c o u n t l e s s c i t y d w e l l e r s on Sunday a f t e r n o o n s .

The w e l l maintained farm r o a d s , with s i d e p a t h s and benches, enable t h e

e l d e r l y as w e l l as t h e young t o undertake l e i s u r e l y strolls and enjoy a

c l o s e r c o n t a c t w i t h n a t u r e t h a n would o t h e r w i s e be p o s s i b l e i n t h e i r

urban l i f e .

The o l d e s t and m o s t impressive r e s t o r e d r e g i o n l i e s i n t h e s o u t h e r n

s e c t i o n of t h e c o a l f i e l d n e a r Briihl, where a f o r e s t - a n d - l a k e landscape of

d i s t i n c t i v e charm has been c r e a t e d . The numerous ponds and lakes, formed

from deep p i t s l e f t o v e r from t h e l i g n i t e mining, have been a r t f u l l y

f i t t e d i n t o t h e landscape and are s c a r c e l y d i s t i n g u i s h a b l e from n a t u r a l

bodies of water. The l a k e s have s l o p i n g s h o r e s and shallow edges which

a r e p l a n t e d t o reeds and g r a s s e s t o p r o v i d e w i l d l i f e h a b i t a t s . The

r e s t o r e d r e g i o n comprises some 3,000 a c r e s and s e r v e s both as a r e c r e a t i o n

park and a w i l d l i f e p r e s e r v e . Because of t h e many o p p o r t u n i t i e s f o r

 44

A f o r e s t and l a k e landscape has been c r e a t e d on surface-mined land

n e a r Briihl, West Germany. Today, t h e l a n d s e r v e s as a w i l d l i f e
p r e s e r v e and r e c r e a t i o n park. The l a n d w a s r e s t o r e d some f i f t y
y e a r s ago.

The t h i r t y - n i n e a r t i f i c i a l l a k e s and ponds formed on former mining

l a n d s p r o v i d e o p p o r t u n i t i e s f o r water s p o r t s to thousands of week-end
v i s i t o r s from t h e g r e a t e r Cologne area.
water s p o r t s and h i k i n g , the park a t t r a c t s some 20,000 v i s i t o r s each

weekend from t h e g r e a t e r Cologne area. I t is maintained j o i n t l y by t h e

F o r e s t r y D i v i s i o n of t h e mining company and t h e S t a t e F o r e s t r y S e r v i c e i n

c o o p e r a t i o n w i t h c i v i c o r g a n i z a t i o n s of neighboring communities. The

achievements h e r e , and elsewhere i n the Rhineland brown-coal area, demon-

s t r a t e t h a t , with p r o p e r p l a n n i n g and e f f o r t , t h e needs of i n d u s t r y f o r

r a w materials and power can be m e t w i t h o u t producing e x c e s s i v e environmental

damage.

7. GOVERNMENT REGULATION AND SUPERVISION

7.1 H i s t o r i c a l Development

The p r e s e n t form of t h e brown-coal i n d u s t r y and t h e adoption of

e n l i g h t e n e d l a n d r e s t o r a t i o n p r a c t i c e s i n Germany evolved g r a d u a l l y o v e r

t h e p a s t s e v e r a l decades. Although r e f o r e s t a t i o n o f l a n d areas d i s t u r b e d

by l i g n i t e surface-mining has been c a r r i e d o u t i n Germany s i n c e t h e e a r l y

1 9 2 0 ' ~t h~ e p r a c t i c e of r e s t o r i n g l a n d f o r a g r i c u l t u r a l u s e w a s n o t

i n s t i t u t e d u n t i l much l a t e r . The l o c a t i o n of t h e Rhineland l i g n i t e

d e p o s i t s , i n t h e m i d s t of r i c h , f e r t i l e farmland, provided a s t r o n g

i n c e n t i v e €or this t y p e of l a n d reclamation. P u b l i c concern o v e r t h e

l a r g e t r a c t s of unreclaimed l a n d l e f t over from World War I1 began t o

appear a f t e r t h e w a r , p a r t i c u l a r l y i n the v i c i n i t y of Cologne, where t h e

proximity of t h e mining o p e r a t i o n s made t h e d i s t u r b e d l a n d s h i g h l y v i s i b l e

t o g r e a t numbers of people. A s a r e s u l t , new surface-mining c o n t r o l

l e g i s l a t i o n w a s e n a c t e d i n the y e a r 1950 t o a s s u r e o r d e r l y , well-planned

mining p r a c t i c e s .

On March 11, 1950, t h e s t a t e l e g i s l a t u r e of North Rhine Westphalia

 46

passed Germany's f i r s t Regional Planning Law. T h i s l a w , modified i n

May 1 9 6 2 , e s t a b l i s h e d a Land Planning Commission charged w i t h t h e r e s p o n s i -

b i l i t y of developing o v e r a l l g u i d e l i n e s f o r l a n d u s e w i t h i n t h e s t a t e .

The main purpose of t h e commission i s t o h e l p c o o r d i n a t e t h e d i v e r s e

s o c i a l , economic, and i n d u s t r i a l a c t i v i t i e s of the r e g i o n . The commission

d e s i g n a t e s s p e c i f i c l a n d a r e a s f o r u s e by a g r i c u l t u r e , f o r e s t r y , and

i n d u s t r y and sets t h e boundaries of populated s e t t l e m e n t s . I t develops

long-range p l a n s f o r t r a n s p o r t a t i o n a r t e r i e s and networks, t h e p r e s e r v a t i o n

of h i s t o r i c s i t e s , and t h e c o n s t r u c t i o n of r e c r e a t i o n a l f a c i l i t i e s t o s e r v e

t h e e n t i r e region. On A p r i l 4 , 1950, t h e s t a t e l e g i s l a t u r e e n a c t e d two

a d d i t i o n a l l a w s a p p l y i n g s p e c i f i c a l l y t o t h e brown-coal producing areas of

t h e region. These a r e The Law f o r O v e r a l l Planning i n t h e Rhineland Brown

Coal Area (Gesetz uber d i e Gesamtplanung i m Rheinischen Braunkohlengebiet -

GS NW. S. 450) and a n o t h e r law e s t a b l i s h i n g a Community Fund t o f i n a n c e

land r e s t o r a t i o n . The f i r s t of t h e s e laws c r e a t e d t h e Brown Coal

Committee which develops d e t a i l e d p l a n s f o r e x p l o i t i n g t h e l i g n i t e r e s o u r c e s

of t h e s t a t e w i t h i n t h e framework and s p i r i t of t h e o v e r a l l r e g i o n a l p l a n n i n g

law.

7.2 The Brown Coal Committee

The b a s i c r e s p o n s i b i l i t y of t h e Brown Coal Committee i s t o s a f e g u a r d

l a n d a r e a s t e m p o r a r i l y used f o r brown-coal mining from long-term damage and

from being rendered u n s u i t a b l e f o r more l a s t i n g u s e s . This r e s p o n s i b i l i t y

encompasses more t h a n merely p r e v e n t i n g t h e c r e a t i o n o f d e s o l a t e a r e a s by

r e q u i r i n g t h a t t h e land be r e s t o r e d f o r f o r e s t r y o r a g r i c u l t u r e . Rather, i n

l i g h t of t h e g e n e r a l o b j e c t i v e s of t h e o v e r a l l r e g i o n a l p l a n n i n g , t h e Brown

Coal Committee a s s u r e s t h a t t h e l a n d i s r e s t o r e d i n such a way a s t o harmon-

i z e w i t h t h e s o c i a l , c u l t u r a l , and i n d u s t r i a l i n t e r e s t s of t h e rest of t h e
 47

region. The Brown Coal Committee is composed o f 2 7 members ( F i g . 2 ) espec-

i a l l y selected t o r e p r e s e n t t h e s o c i e t a l i n t e r e s t s m o s t a f f e c t e d by t h e

impact of t h e mining o p e r a t i o n s . Members of t h e committee a r e t h e d i s t r i c t

governors i n Cologne, Aachen, and Dusseldorf; the head o f t h e s t a t e mining

agency; t h e Rhineland l a n d p l a n n i n g commissioner; t h e m i n i s t e r of a g r i c u l t u r e ;

a r e p r e s e n t a t i v e of t h e Rhineland A g r i c u l t u r e A s s o c i a t i o n ; t h e d i r e c t o r o f

t h e S t a t e Land S e t t l e m e n t O f f i c e ; t h r e e r e p r e s e n t a t i v e s from t h e brown-coal

mining i n d u s t r y ; t h r e e r e p r e s e n t a t i v e s of mining unions; f i v e r e p r e s e n t a -

t i v e s from county governments, t h r e e r e p r e s e n t a t i v e s of t h e f a r m e r s ; one

r e p r e s e n t a t i v e of C r a f t s and T r a d e s ; one r e p r e s e n t a t i v e from t h e power

i n d u s t r y ; one r e p r e s e n t a t i v e of t h e stoneware i n d u s t r y ; one r e p r e s e n t a t i v e

from t h e i n d u s t r i a l union f o r chemistry-paper-ceramics; and one r e p r e s e n t a -

t i v e f r o m t h e E r f t Basin Conservation Club.

ORNL-DWG 71 -984%

CHAIRMAN
CHIEF ADMINISTRATOR
OF COLOGNE

CHIEF ADMINISTRATOR CHIEF ADMINISTRATOR

OF AACHEN OF DUSSELDORF

FARMERS ASSOCIATI0
UNTY GOVERNMENTS
BROWN COAL
MINING INDUSTR
RHINELAND L A N D
PLANNING COMMISSION
RHINELAND AGRICULTURE
ASSOCIATION MINISTER OF AGRICULTURE
IN BONN
STATE ENFORCEMENT AGENCY
HEAD OF L A N D REDISTRIBUTION
CHIEF INSPECTOR OF MINES AND SETTLEMENT OFFICE
CONSERVATION ELECTRIC WWER
CLUE INDUSTRY
BROWN COAL STONEWARES INDUSTRY
WORKERS COMMITTEE CHEMICALS -PAPER-
MINING UNION
27 MEMBERS CERAMICS UNION

CRAFTS AND TRADES

SUBCOMMITTEES cou SUBCOMMITTEES

TECHNICAL EXPERTS

Fig. 2. The Brown Coal Committee of North Rhine Westphalia.

 48

T h i s broad b a s e of r e p r e s e n t a t i o n on t h e committee a f f o r d s an

o p p o r t u n i t y t o r e s o l v e c o n f l i c t s long b e f o r e a c t u a l mining a c t i v i t i e s

begin. The committee formulates l a n d r e s t o r a t i o n requirements based on

t h e f u t u r e use of t h e l a n d . These requirements a r e determined as e a r l y

a s p o s s i b l e t o e n a b l e t h e mining company t o d e s i g n i t s mining o p e r a t i o n s

accordingly. The primary f u n c t i o n of t h e committee i s t o a c t a s a review

body t o c o n s i d e r p r o p o s a l s f o r extending mining o p e r a t i o n s t o new l a n d

areas and t o make a p p r o p r i a t e recommendations t o t h e m i n i s t e r - p r e s i d e n t

of North Rhine Westphalia. A s can be expected i n view of t h e composition

of t h e Brown Coal Committee, t h e f i n a l recommendation t o t h e s t a t e govern-

ment i s based on c o n s i d e r a t i o n s of o v e r a l l l a n d u s e , c o n f l i c t i n g l o c a l

i s s u e s , and n a t i o n a i c o a l requirements. The Brown Coal Committee has

g r a d u a l l y emerged as a powerful f o r c e , d e f i n i n g t h e c o n d i t i o n s under which

t h e brown c o a l i n d u s t r y must o p e r a t e . I t s e x i s t e n c e s u b j e c t s t h e brown

c o a l i n d u s t r y t o p u b l i c s c r u t i n y and has been i n s t r u m e n t a l i n b r i n g i n g

about t h e c o n s e r v a t i o n p r a c t i c e s of t h e i n d u s t r y . The Brown Coal Committee

*
s e r v e s as a q u a s i - p u b l i c forum where t h e d i v e r g e n t i n t e r e s t s of s o c i e t y

can be c o n s i d e r e d b e f o r e mining commences. P u b l i c h e a r i n g s and t h e s i g n a -

t u r e of t h e s t a t e c h i e f e x e c u t i v e a r e r e q u i r e d b e f o r e t h e recommendations

of t h e committee become l e g a l l y binding.

The a d o p t i o n of requirements t h a t a c e r t a i n p o r t i o n of t h e l a n d d i s -

t u r b e d by t h e s u r f a c e mining of brown c o a l be r e s t o r e d t o a g r i c u l t u r a l

p r o d u c t i v i t y i l l u s t r a t e s t h e importance of such a p l a n n i n g and review body.

S h o r t l y a f t e r World War 11, a c o a l i t i o n of a g r i c u l t u r a l groups w i t h i n t h e

Brown Coal Committee became concerned o v e r t h e d e s t r u c t i o n of f e r t i l e farmland

by t h e mining o p e r a t i o n s . I n t h e l a t e 1 9 5 0 ' s , t h i s c o a l i t i o n of a g r i -
 49

c u l t u r a l i n t e r e s t s , known a s t h e "green f r o n t , " s u c c e s s f u l l y campaigned

w i t h i n t h e committee t o r e q u i r e t h a t t h e v a l u a b l e t o p l a y e r of l o e s s ,

o f t e n 15 t o 2 0 f e e t t h i c k , be saved, and t h a t a p o r t i o n of t h e l a n d d i s -

t u r b e d by s u r f a c e mining be r e s t o r e d t o a g r i c u l t u r a l p r o d u c t i v i t y .
ORNL-DWG 71-9847

LAND PLANNING
COMMl SSlON

ENFORCEMENT

COAL MINING

Fig. 4. C o n t r o l of C o a l S u r f a c e Mining i n Germany

The key t o t h e German l a n d r e s t o r a t i o n program l i e s i n d e t a i l e d

advance planning based on t h e needs of t h e r e g i o n as a whole. When it
becomes n e c e s s a r y t o extend mining o p e r a t i o n s t o new, unopened l a n d a r e a s ,
t h e brown-coal mining company submits a p r o p o s a l c o n t a i n i n g comprehensive
mining and l a n d r e c l a m a t i o n p l a n s t o t h e Brown Coal Committee. The
Committee examines t h e p r o p o s a l with r e s p e c t t o r e g i o n a l planning g o a l s and
h e a r s testimony from t e c h n i c a l e x p e r t s , r e p r e s e n t a t i v e s from t h e enforcement
agency, and o t h e r government a g e n c i e s which a r e a f f e c t e d . The p l a n may be
a c c e p t e d , modified, o r r e j e c t e d a f t e r committee d i s c u s s i o n and review. If
t h e p l a n i s approved, p u b l i c h e a r i n g s a r e h e l d t o d i s c u s s i t s p r o v i s i o n s ,
and t h e p l a n is f i n a l l y s e n t t o t h e t i t u l a r head of t h e s t a t e l a n d p l a n n i n g
commission f o r o f f i c i a l a d o p t i o n .

7.3 Implementing t h e Mining and Reclamation Plan

A f t e r t h e mining and l a n d r e h a b i l i t a t i o n p l a n is adopted, t h e S t a t e

Mining O f f i c e is r e s p o n s i b l e f o r s u p e r v i s i n g i t s implementation and a s s u r i n g

t h a t t h e mining and l a n d r e s t o r a t i o n a c t i v i t i e s are c a r r i e d o u t i n accordance

with i t s s t i p u l a t e d provisions. The mining company i s r e q u i r e d by l a w t o

c o o p e r a t e by p r o v i d i n g a l l i n f o r m a t i o n which t h e s t a t e enforcement agency

 50

needs t o c a r r y o u t i t s r e g u l a t o r y f u n c t i o n . For example, t h e brown-coal

mining company r o u t i n e l y submits a e r i a l survey photographs every s i x months

t o document i t s mining and l a n d r e s t o r a t i o n p r o g r e s s . The p l a n n i n g and

enforcement p r o c e s s , w i t h p a r t i c i p a t i o n of non-mining i n t e r e s t s , a f f o r d s

f l e x i b i l i t y i n r e s o l v i n g t h e s o c i a l and environmental problems posed by

s u r f a c e mining. The recommendations of t h e Brown C o a l Committee s e r v e as

a l i v i n g law which changes i n accordance w i t h t h e requirements of s p e c i f i c

situations. S i n c e t h e d e l i b e r a t i o n s t a k e p l a c e w e l l i n advance of a c t u a l

mining, amply s u f f i c i e n t l e a d time i s a v a i l a b l e f o r f u l l c o n s i d e r a t i o n of

a l l of t h e i s s u e s and problems. By v i r t u e of i t s r e p r e s e n t a t i o n on t h e

Brown Coal Committee, the s t a t e enforcement agency is f u l l y c o g n i z a n t of

t h e s p i r i t and i n t e n t i o n behind p r o v i s i o n s of t h e o p e r a t i o n s p l a n and is

a b l e t o d r a f t supplementary r e g u l a t i o n s a c c o r d i n g l y .

7.4 S t a t e Mining O f f i c e

The S t a t e Mining O f f i c e (Bergamt) of North Rhine Westphalia is t h e

agency which o v e r s e e s mining o p e r a t i o n s and e n f o r c e s t h e p r o v i s i o n s of th'e

land r e s t o r a t i o n plan. Since most of t h e German l i g n i t e d e p o s i t s a r e

l o c a t e d w i t h i n t h i s s i n g l e s t a t e , n e a r l y a l l government c o n t r o l of brown-

c o a l s u r f a c e mining i s on t h e s t a t e , r a t h e r t h a n t h e f e d e r a l , l e v e l . The

t a s k of s e t t i n g adequate reclamation s t a n d a r d s i s f a c i l i t a t e d by t h e l a c k

of s i g n i f i c a n t economic c o m p e t i t i o n from neighboring s t a t e s . The l e g a l

a u t h o r i t y t o r e g u l a t e t h e e x t r a c t i o n of m i n e r a l s i n W e s t Germany d e r i v e s

from a g e n e r a l mining l a w based on an o l d e r P r u s s i a n model w r i t t e n June 24,

1865. The l a w r e s e r v e s n e a r l y a l l m i n e r a l r i g h t s t o t h e s t a t e which may

g r a n t mining concessions t o p r i v a t e companies. The concession c o n f e r s on

t h e s e companies t h e r i g h t t o commercially e x p l o i t t h e mineral r e s o u r c e s by

 51

s t a t e - a p p r o v e d methods. T r a d i t i o n a l l y , t h e c o n c e s s i o n has g e n e r a l l y been

g r a n t e d t o t h e d i s c o v e r e r o f new mineral d e p o s i t s i n o r d e r t o encourage

prospecting.

Under t h e b a s i c P r u s s i a n l a w of 1865, t h e f o l l o w i n g m i n e r a l s are

s p e c i f i c a l l y r e s e r v e d t o t h e state:

- g o l d , s i l v e r , mercury, i r o n , l e a d , copper, t i n , z i n c , c o b a l t ,

- n i c k e l , arsenic, manganese, antimony, s u l f u r , alum, v i t r i o l i c o r e ,

- bituminous c o a l , brown c o a l , g r a p h i t e , rock s a l t , potash s a l t ,

- magnesia s a l t , and borax.

A s e x t e n s i v e as t h i s l i s t i s , a number of commercially important m i n e r a l s

are o m i t t e d . Among t h e s e m i n e r a l s are: sand, g r a v e l , l i m e s t o n e , q u a r t z i t e ,

and pumice s t o n e . Pumice s t o n e i s used t o manufacture l i g h t - w e i g h t b u i l d -

i n g b l o c k s , and limestone i s mined as a r a w material f o r t h e cement i n d u s t r y .

I n some r e g i o n s of Germany, t h e mining of t h e s e materials has produced

l a r g e , v i s i b l e s c a r s on t h e landscape. The p r a c t i c e is b e i n g watched w i t h

growing concern by German c o n s e r v a t i o n i s t s , some of whom are beginning t o

advocate t h a t t h e mining of a l l m i n e r a l s should be s u b j e c t t o government

control.

The S t a t e Mining O f f i c e o f North Rhine Westphalia has t h i r t e e n r e g i o n a l

o f f i c e s t o o v e r s e e t h e mining a c t i v i t i e s i n t h e s t a t e , i n c l u d i n g t h e mining

and r e c l a m a t i o n o p e r a t i o n s of t h e brown-coal i n d u s t r y , w i t h i t s annual

p r o d u c t i o n of n e a r l y 100 m i l l i o n t o n s . Each r e g i o n a l o f f i c e i s s t a f f e d

w i t h about t e n mine i n s p e c t o r s , u s u a l l y t r a i n e d mining e n g i n e e r s , who

spend m o s t of t h e i r t i m e i n t h e f i e l d o b s e r v i n g t h e p r o g r e s s o f o p e r a t i o n s

and checking f o r compliance w i t h r e g u l a t i o n s . T y p i c a l l y , a s t a f f member

spends o n l y about t w o days per week a t h i s home o f f i c e keeping n e c e s s a r y

 52

r e c o r d s and f i l i n g r e p o r t s . I n c l u d i n g a d m i n i s t r a t i v e and support s t a f f ,

t h e S t a t e Mining O f f i c e of t h e North Rhine Westphalia employs a t o t a l o f

some 200 people a t an average s a l a r y of about 2 , 0 0 0 DM p e r month. (The

c u r r e n t exchange r a t e amounts t o 3.45 DM p e r d o l l a r . ) Thus, t h e t o t a l

o u t l a y of t h e agency i s around 5 , 0 0 0 , 0 0 0 DM p e r y e a r . According to i n -

formation from t h e Cologne r e g i o n a l o f f i c e , about t h e same amount of money

i s expended each year by t h e brown-coal mining i n d u s t r y t o reclaim l a n d

f o r a g r i c u l t u r a l uses.

A d d i t i o n a l s t u d y is needed t o p r o r a t e p r e c i s e l y t h e budget of t h e

S t a t e Mining O f f i c e of North Rhine Westphalia among t h e v a r i o u s e x t r a c t i v e

i n d u s t r i e s it r e g u l a t e s . N e v e r t h e l e s s , it is a l r e a d y c l e a r t h a t t h e c o s t

of a d m i n i s t e r i n g and e n f o r c i n g a s t r i p - m i n e r e c l a m a t i o n b i l l can c o n s t i t u t e

a s u b s t a n t i a l p a r t of t h e o v e r a l l r e s t o r a t i o n c o s t s . I n s p i t e of t h e

expense, however, a well-supported enforcement agency is v i t a l t o t h e

success of any reclamation program. The agency not o n l y e n f o r c e s t h e

e x p l i c i t p r o v i s i o n s of t h e l a w , b u t a l s o , by w r i t i n g supplementary r e g u l a -

t i o n s as p a r t of i t s i n t e r p r e t i v e r o l e , l a r g e l y sets t h e t o n e of t h e

program. I n Germany, t h e brown-coal mining i n d u s t r y w a s a t f i r s t re-

l u c t a n t t o undertake t h e h i g h l y expensive r e c l a m a t i o n of farmland. The

r e g u l a t o r y agency, backed up by a s t r o n g l a w , played a h i g h l y i m p o r t a n t

r o l e i n b r i n g i n g about an acceptance of t h e p r a c t i c e - t o d a y an even

s l i g h t l y p r o f i t a b l e venture.

8. FORMULATION OF A U . S . POLICY ON SURFACE M I N I N G

Some elements of t h e German s u r f a c e mining and l a n d r e c l a m a t i o n

techniques are a p p l i c a b l e t o U . S . s t r i p - m i n i n g i n s p i t e of i m p o r t a n t
 53

d i f f e r e n c e s i n the c l i m a t e , t e r r a i n , and g e o l o g i c a l f e a t u r e s o f t h e c o a l -

b e a r i n g r e g i o n s of t h e t w o c o u n t r i e s . Bucket wheel e x c a v a t o r s of t h e t y p e

used i n t h e Rhineland have a l r e a d y been used i n North Dakota and I l l i n o i s

t o remove s o f t , u n c o n s o l i d a t e d overburden, and i n n o r t h e r n Canada t o mine

t a r sand.13 These machines can operate c o n t i n u o u s l y and d e l i v e r t h e

l o o s e overburden by conveyor b e l t t o a s e p a r a t e , i n t e r f a c i n g t r a n s p o r t a t i o n

system. Because of i t s d i g g i n g s e l e c t i v i t y , the b u c k e t wheel e x c a v a t o r

i s e s p e c i a l l y s u i t a b l e f o r s e p a r a t i n g t h e f e r t i l e t o p - s o i l from khe r e -

maining overburden material and s a v i n g i t f o r l a t e r use i n l a n d r e c l a m a t i o n .

I t i s n o t w e l l - s u i t e d f o r hard rock d i g g i n g o r f o r t h e h a n d l i n g o f d r i l l e d

o r b l a s t e d materials. S i m i l a r l y , t h e extremely heavy weight and l i m i t e d

m o b i l i t y of t h e bucket wheel e x c a v a t o r m a k e it wholly u n s u i t a b l e f o r

Appalachian contour mining. N e v e r t h e l e s s , t h e c o a l f i e l d s of t h e United

States - e s p e c i a l l y t h o s e i n t h e i n t e r i o r , n o r t h e r n g r e a t p l a i n s , and

western p r o v i n c e s - c o n t a i n v a s t expanses o f g e n t l y r o l l i n g o r f l a t l a n d

where t h e German technology could be a p p l i e d i f t h e r e w e r e s u f f i c i e n t

incentives for f u l l land r e s t o r a t i o n .

Whether o r n o t l e g i s l a t i o n e x i s t s , r e q u i r i n g t h a t q u a l i t y l a n d r e s t o r a -

t i o n be i n t e g r a t e d i n t o t h e mining c y c l e can change t h e economics of

mining and t h e r e b y i n f l u e n c e t h e s e l e c t i o n of a s p e c i f i c e x c a v a t i o n tech-

nology. I f t h e d i g g i n g machines do n o t have t o be coupled t o a s e p a r a t e

t r a n s p o r a t i o n system - t o h a u l away and save the t o p s o i l and t o t r a n s p o r t

massive amounts of s p o i l m a t e r i a l t o r e f i l l a r e a s - t h e operational costs

o f e x c a v a t i n g would t e n d t o d i c t a t e choosing t h e g i a n t shovels and drag-

l i n e s c u r r e n t l y b e i n g used i n s o u t h e r n O h i o and I l l i n o i s . If f u l l restora-

t i o n of t h e l a n d a f t e r mining i s planned, it may w e l l be t h a t s o m e a d a p t a t i o n

 54

of t h e e x c a v a t i o n and t r a n s p o r t a t i o n system used i n t h e Rhineland i s more

economical and e f f i c i e n t . I n o t h e r words , d i f f e r e n t c o n c l u s i o n s a r e

reached depending upon what p o r t i o n of t h e o v e r a l l mining c y c l e is i n c l u d e d

i n the optimization process. S i n c e investments f o r mining equipment can

be q u i t e l a r g e and t h e amount of d i s t u r b e d l a n d is i n c r e a s i n g r a p i d l y , a

n a t i o n a l d e c i s i o n on l a n d r e c l a m a t i o n requirements is d e s i r a b l e a s soon as

possible.

I n t h e main, t h e methods of l a n d r e c l a m a t i o n which are a d a p t a b l e from

t h o s e employed i n t h e Rhineland l i g n i t e f i e l d s apply t o t h e r o l l i n g p l a t e a u

country and t h e f l a t l a n d s d e s c r i b e d e a r l i e r . I n such topography, t h e

s l u r r y method of s p r e a d i n g loam on graded, f i l l e d - i n a r e a s i s t e c h n i c a l l y

feasible. Of course , as i n t h e c a s e of choosing an e x c a v a t i o n t e c h n o l o g y ,

economic c o n s i d e r a t i o n s may f a v o r some a l t e r n a t i v e method of accomplishing

t h e same purpose. The l a r g e amount of d i r e c t e d r e s e a r c h c a r r i e d o u t a t

t h e U n i v e r s i t y of Bonn t o determine s u i t a b l e p l a n t s and trees f o r r e v e g e t a -

t i o n of t h e mined l a n d s , and t h e f a c t o r s a f f e c t i n g t h e i r growth r a t e s , should

be v a l u a b l e and u s e f u l i n t h e United S t a t e s . A s w e have s e e n , much of t h e

environmental d e g r a d a t i o n from s u r f a c e mining c a n b e prevented by making a

conscientious e f f o r t i n land reclamation. N e v e r t h e l e s s , it is s t i l l t o o

e a r l y t o exclude t h e p o s s i b i l i t y of long-range, a d v e r s e e f f e c t s from s u r f a c e

fining. For example, t h e a l t e r e d ground s t r a t a and m i n e r a l c o n t e n t of

mined l a n d s could unfavorably a f f e c t groundwater movements o r p e r c o l a t i o n

characteristics. These could conceivably l e a d t o u n d e s i r a b l e long-range

r e s u l t s such as i n c r e a s e d s o i l s a l i n i t y i n t h e mined l a n d a r e a s o r e l s e w h e r e .

Although t h e r e i s no reason t o s u s p e c t t h a t such e v e n t s are a c t u a l l y

o c c u r r i n g i n t h e Rhineland, t h e p o s s i b i l i t y of s u b t l e , b u t u l t i m a t e l y
 55

harmful changes cannot be d i s m i s s e d . For t h i s r e a s o n , it i s important t o

g a i n a b e t t e r understanding of p o s s i b l e g e o l o g i c a l e f f e c t s and t o c o n t i n u e

t o develop improved mining t e c h n i q u e s . P r e f e r a b l y , t h e new mining methods

should avoid removing massive amounts of overburden.

I n the United S t a t e s , s o c i e t y has l a r g e l y f a i l e d t o provide adequate

s a f e g u a r d s a g a i n s t environmental d e g r a d a t i o n from s u r f a c e mining. On t h e

whole, s t a t e s t r i p - m i n i n g and r e c l a m a t i o n s t a n d a r d s have proved t o be

inadequate and t h e i r enforcement i n e f f e c t i v e . N a t i o n a l l y uniform p u b l i c

p o l i c i e s a r e needed c a l l i n g f o r f u l l and prompt r e s t o r a t i o n o f a l l l a n d

areas a f f e c t e d by s u r f a c e mining a c t i v i t i e s t o s l o w down t h e o f t e n

scandalous d e v a s t a t i o n of o u r l a n d r e s o u r c e s by c u r r e n t p r a c t i c e s . Under

such a p u b l i c p o l i c y mining companies could prepare, and submit t o

a u t h o r i t i e s , proposed mining p l a n s and a n a l y s e s of t h e expected e n v i r o n -

mental impacts of t h e i r proposed a c t i o n s and, a t t h e very l e a s t , could

be r e q u i r e d t o take t h e n e c e s s a r y s t e p s t o s t a b i l i z e t h e d i s t u r b e d l a n d

areas c r e a t e d . These mandatory, minimal s t e p s could i n c l u d e prompt

r e v e g e t a t i o n of mined l a n d s , p r o v i s i o n of p r o t e c t e d water run-off systems

and s e t t l i n g ponds, and b u r i a l of s u l f u r - b e a r i n g m i n e r a l s t o reduce a c i d

water d r a i n a g e . The Tennessee V a l l e y A u t h o r i t y has r e c e n t l y t a k e n s o m e

i n i t i a l , u n i l a t e r a l s t e p s i n t h i s d i r e c t i o n i n t h e i r coal purchasing

contracts. I t should be r e a l i z e d , however, t h a t t h e s e measures a l o n e

w i l l n o t s u f f i c e t o e n s u r e w i s e u t i l i z a t i o n of n a t u r a l r e s o u r c e s . Planting

crown vetch o r l o c u s t trees on s p o i l banks may reduce e r o s i o n , b u t it would

be a mockery t o claini t h a t t h e l a n d has t h e r e b y been r e s t o r e d . A require-

ment f o r f u l l l a n d r e s t o r a t i o n i m p l i e s t h a t t h e l a n d be r e t u r n e d t o i t s

o r i g i n a l c o n d i t i o n o r , i f n o t , t o a c o n d i t i o n i n conformance w i t h a p u b l i c l y

approved land-use p l a n .
 56

The r e s t o r a t i o n achievements i n t h e Rhineland c l e a r l y demonstrate t h a t

a m e t i c u l o u s l y planned, well-funded program can produce impressive r e s u l t s

i n land reclamation. The United States u r g e n t l y needs a p l a n n i n g i n s t i t u t i o n

l i k e t h e Brown Coal Committee t o formulate and e n f o r c e l a n d r e c l a m a t i o n

s t a n d a r d s which vary according t o the t e r r a i n , c l i m a t e , and land-use p a t t e r n

of t h e r e g i o n b e i n g considered. The l a n d r e s t o r a t i o n requirements should

be based on t h e i n t e n d e d use of t h e l a n d a f t e r mining is completed -

s p e c i f y i n g r e s t o r a t i o n r e s u l t s t o be achieved r a t h e r t h a n simply p r o c e d u r e s

t o be followed. The planning and r e g u l a t o r y agency should be empowered t o

ban s t r i p - m i n i n g i n t e r r a i n where adequate l a n d r e c l a m a t i o n is i m p o s s i b l e ,

and t o impose temporary m o r a t o r i a i n o t h e r a r e a s where s t r i p - m i n i n g would

a d v e r s e l y affect t h e p u b l i c i n t e r e s t . The same agency, o r a n o t h e r , would

a l s o r e q u i r e ample p o w e r s t o e n f o r c e compliance w i t h t h e approved s t a n d a r d s .

I n summary, t h e r e i s much t h a t can be l e a r n e d from t h e German e x p e r i -

ence i n r e s t o r i n g surface-mined l a n d s . T h e i r program has been i n e f f e c t

f o r some twenty y e a r s and has helped t o minimize s o c i a l d i s l o c a t i o n s and

environmental damage from brown-coal s u r f a c e mining. A d d i t i o n a l s t u d y is

needed t o i d e n t i f y key s o c i a l and l e g a l d i f f e r e n c e s between t h e two c o u n t r i e s

and t o a s c e r t a i n the form of s u r f a c e mining c o n t r o l best s u i t e d t o c o n d i t i o n s

i n t h e United S t a t e s . The l a n d r e s t o r a t i o n program i n North m i n e

Westphalia embodies f o u r main p r i n c i p l e s which have made i t v i a b l e and

effective. F i r s t , t h e r e g u l a t i o n of s u r f a c e mining is i n c o r p o r a t e d w i t h i n

an o v e r a l l r e g i o n a l development p l a n . T h i s makes it p o s s i b l e t o p r o t e c t

t h e l a r g e r i n t e r e s t s of t h e whole r e g i o n . Second, a p l a n n i n g body composed

of r e p r e s e n t a t i v e s from d i v e r s e i n t e r e s t groups p a r t i c i p a t e s i n f o r m u l a t i n g

d e t a i l e d requirements for mining and l a n d r e s t o r a t i o n long b e f o r e t h e a c t u a l

 57

mining b e g i n s . Thus, a broad spectrum of s o c i e t y i s c o n s u l t e d and untimely

h a s t e is avoided. T h i r d , t h e recommendations o f t h e p l a n n i n g body are

s u b m i t t e d f o r p u b l i c review b e f o r e b e i n g adopted and implemented. This

p r o v i d e s a p o l i t i c a l p r e s s u r e r e l i e f v a l v e a s w e l l as a mechanism f o r d e t e c t -

i n g p o s s i b l e adverse s i d e - e f f e c t s which had escaped c o n s i d e r a t i o n . Fourth,

an enforcement agency is empowered t o e n f o r c e t h e p l a n which i s f i n a l l y

approved and adopted. The German program o f f e r s v i s i b l e evidence t h a t , w i t h

d e t a i l e d advance p l a n n i n g , s t r i k i n g achievements i n r e d u c i n g environmental

damage from s u r f a c e mining are p o s s i b l e a t a p r i c e t h a t can be borne by t h e

consumer.
 58

ACKNOWLEDGEMENT

The a u t h o r wishes t o t a k e t h i s o p p o r t u n i t y t o e x p r e s s h i s a p p r e c i a t i o n

t o t h e many i n d i v i d u a l s i n the F e d e r a l Republic of Germany who k i n d l y made

a v a i l a b l e t h e information described i n t h i s r e p o r t . In particular, the

h o s p i t a l i t y and c o o p e r a t i o n extended by t h e Rheinische Braunkohlenwerke A.G.

mining company i s g r a t e f u l l y acknowledged. O f t h e many p e o p l e who extended

c o u r t e s y , t h e f o l l o w i n g a r e e s p e c i a l l y recognized and remembered:

H e r r H. B a l t s c h , I n f o r m a t i o n Rheinbraun,

H e r r G. Winterwerb, Information Rheinbraun,

Herr W. S c h u l t h e i s s , D i r e c t o r Bergamt Cologne, and Herr

Dr. Volker Hauff, M i t g l i e d d e s Deutschen Bundestags.

 59

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1. Udall, S t e w a r t L . , " N a t u r a l Resource Missio t o Germany - 1966,

A Special R e p o r t to the President. 'I

2. R a t c l i f f , J. D., " T r a n s p l a n t i n Germany's H e a r t l a n d , " Readers' D i g e s t ,

B r i t i s h e d i t i o n , October 1968.

3. Udall, S t e w a r t L . , S u r f a c e M i n i n g and Our Environment--A S p e c i a l

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I n t e r i o r , 1966. T h e S t r i p M i n i n g of America - Analysis of Surface

Coal M i n i n g and T h e E n v i r o n m e n t , S i e r r a Club, N e w York, J u l y 1971.

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Commission, 1969.

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 60

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U.S.A.," I l l i n o i s Mining I n s t i t u t e Proceedings, 1964, pp. 65-90.

 61

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Rheinbraun 1970 - B e r i c h t Fir das G e s c h & f t s j a h r 1970, Rheinische

Braunkohlenwerke A k t i e n q e s e l l s c h a f t , KCln.

Braunkohle E n e r g i e fiir h e u t e und morgen, Eine Dia-Reihe des

r h e i n i s c h e n Braunkohlenbergbaus, Herausgeber: Rheinische

Braunkohlenwerke A . G . , Informationsabteilung.
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Laws Governing Mining

Satzung und Beitragsordnung d e r Landesplanungsgemeinschaft Rheinland

vom 27. M a r 2 1952, M i n s t e r i a l b l a t t fir d a s Land Nord-Rhein W e s t f a l e n ,

5. Jahrgang, N u m m e r 49, 21. J u l i 1952.

Landesplanungsgesetz vom 11. Marz 1950, Gesetz- und V e r o r d n u n g s b l a t t

f i r d a s Land Nordrhein - W e s t f a l e n , 4. Jahrgang, N m e r 13, 1 7 . A p r i l

1950.

Gesetz iiber d i e Gesamtplanung i m Rheinischen Braunkohlengebiet, vom

25. A p r i l 1950 (GS.NW.S. 4 5 0 ) .

Gesetz iiber d i e E r r i c h t u n g e i n e r Gemeinschaftskasse i m Rheinischen

Braunkohlengebiet, vom 25. A p r i l 1950 (GS.NW.S. 453) .

Horst Dapprich, L e i t f a d e n d e s B e r g r e c h t s und a n d e r e r f u r den Bergbau

w i c h t i g e r R e c h t s g e b i e t e , Verlag Gluckauf G.m.b.H. Essen, 1950.

S o c i a l Impacts

S o z i o l o g i s c h e S t r u k t u r u n t e r s u c h u n g i m r h e i n i s c h e n Braunkohlenrevier,

G e s e l l s c h a f t fiir I n t e r n a t i o n a l e Markt- und Meinungsforschung m.B.H.,

Diisseldorf.

Umsiedlungen i m r h e i n i s c h e n Braunkohlenrevier, Rheinische Braun-

kohlenwerke A.G., I n f o r m a t i o n s a b t e i l u n g , Koln, Mzrz 1965.

Erwin G a r t n e r , D i e V e r p f l i c h t u n g d e r I n d u s t r i e gegeniiber d e r

Landschaft, Natur und Landschaft 44(1969) N r . 1 2 , S e i t e 354.

Konrad Murr, S t r u k t u r v e r b e s s e r u n g e n i m r h e i n i s c h e n Bergbau durch

bergbaubedingte Umsiedlungen, Z e i t s c h r i f t fiir W i r t s c h a f t s -

geographie, 11. Jahrgang, H e f t 8, 1967.

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Land Reclamation and Mining Technology

Neues Ackerland f o l g t dem Tagebau, Herausgeber: Information Rheinbraun

d e r Rheinische Braunkohlenwerke A.G.

W o neue Walder wachsen, Herausgeber: I n f o r m a t i o n Rheinbraun d e r

Rheinische Braunkohlenwerke A.G.

D a s Forstamt Rheinbraun und s e i n e f o r s t l i c h e n R e k u l t i v i e r u n g e n ,

Forstamt d e r Rheinische Braunkohlenwerke A . G . , 5041 K i e r d o r f ,

Friedrich-Ebert-Str. 104.

Blickpunkt Braunkohle, Rheinische Braunkohlenwerke A.G., KZjln.

R e f e r a t Bergwerksdirektor Dr.-Ing. E . Gzrtner, V o r s t a n d s m i t g l i e d

d e r Rheinische Braunkohlenwerke A.G. - 1970 D i e Entwicklung i n

Forschung und Technik ..., I n f o r m a t i o n Rheinbraum d e r Rheinische

Braunkohlenwerke A . G.
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APPENDIX I

A CONTRAST I N ATTITUDES

'I ...... and i f t h e p u b l i c wants us t o p l a n t r o s e s along

t h e s p o i l banks, and i s w i l l i n g t o pay t h e p r i c e , we w i l l
p l a n t r o s e s . A l l w e want a r e c o s t s p l u s p r o f i t , i t i s as
simple as t h a t . "

Spokesman f o r t h e s t r i p - m i n i n g
i n d u s t r y i n Appalachia (1971)

Although p r i v a t e l y owned and o p e r a t e d , t h e Rheinische Braunkohlenwerke

A. G. mining company has e x t e n s i v e l a n d h o l d i n g s i n Germany and f u n c t i o n s

i n c l o s e c o o p e r a t i o n with s t a t e and federal a g e n c i e s . P a r t l y because of

i t s l a r g e s i z e and many r e s o u r c e s , t h e company i s able t o o p e r a t e i n a

s o c i a l l y r e s p o n s i b l e manner and a t t h e s a m e t i m e meet i t s o b l i g a t i o n s t o

its stockholders. The following remarks by D r . E . G Z r t n e r , t h e company's

chairman o f t h e board, i l l u s t r a t e some i m p o r t a n t d i f f e r e n c e s i n a t t i t u d e

between l e a d e r s of t h e mining i n d u s t r y i n Germany and some mining i n d u s t r y

spokesmen i n t h e United S t a t e s . Dr. G a r t n e r f o r t h r i g h t l y acknowledges the

r e s p o n s i b i l i t y of the s u r f a c e mining i n d u s t r y , and of a l l i n d u s t r y , t o

o p e r a t e i n a way t h a t w i l l p r e s e r v e and p r o t e c t the environment. That this

r e p r e s e n t s more t h a n m e r e l i p s e r v i c e t o c u r r e n t l y p o p u l a r views, i s a t t e s t e d

t o by the s o l i d c o n s e r v a t i o n achievements of t h e brown-coal mining i n d u s t r y

i n t h e Rhineland. Furthermore, w e s h o u l d keep i n mind t h a t t h e impressive

l a n d r e s t o r a t i o n r e c o r d of t h e brown-coal i n d u s t r y i n Germany, u n l i k e t h a t

of t h e n a t i o n a l i z e d i n d u s t r y i n Great B r i t a i n and t h e state-owned systems

of t h e communist c o u n t r i e s , w a s achieved wholly w i t h o u t government subsidy.

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Address by D r . Erwin GXrtner Chairman of t h e Board,

F h e i n i s c h e Braunkohlenwerke A.G.*

New developments i n r e s e a r c h and technology are c o n t i n u i n g t o c o n t r i b u t e

t o man's w e l f a r e . However, modem technology and the r a p i d l y i n c r e a s i n g

p o p u l a t i o n a l s o produce a v a r i e t y of environmental problems. P o l l u t i o n of

l a n d , a i r , and water h a s a l r e a d y reached such p r o p o r t i o n s t h a t i n many p l a c e s

t h e very e x i s t e n c e of man i s t h r e a t e n e d . P r o t e c t i n g t h e environment and

planning f o r w i s e l a n d usage, t h e r e f o r e , are among t h e m o s t u r g e n t problems

of today. Appeals a l o n e w i l l n o t h e l p ; the problems must be a t t a c k e d w i t h

v i g o r and d e t e r m i n a t i o n . H e r e w e are f a c e d w i t h a s o c i e t a l problem which

demands i n t e r n a t i o n a l a c t i o n and c o o p e r a t i o n t o a s s u r e t h a t l a n d u s e p o l i c i e s

are worked o u t which w i l l s a t i s f y t h e growing demands of i n d u s t r y as w e l l

a s t h e l i f e s u p p o r t requirements of n a t u r e . To m e e t this g o a l w i l l r e q u i r e

s a c r i f i c e s f r o m a l l , n o t o n l y f o r our own s a k e s b u t a l s o f o r t h e coming

generations.

The European D e c l a r a t i o n f o r t h e P r o t e c t i o n of Nature, which w a s

announced i n February of t h i s y e a r (1970), reminds us t h a t n a t u r e i s t h e

primary s o u r c e of man's p h y s i c a l , i n t e l l e c t u a l , and s p i r i t u a l well-being.

The European Conference on t h e Environment reminds and admonishes us t o use

o u r r e s o u r c e s w i s e l y and s p a r i n g l y . The Conference also appealed t o t h e

mining i n d u s t r y t o r e s t o r e f u l l y a l l l a n d s upon completion o f t h e mining

operations. T h i s r e q u e s t i s f u l l y j u s t i f i e d , b u t it should be mentioned

t h a t t h e amount of l a n d a f f e c t e d by mining i s a c t u a l l y q u i t e small i n

comparison w i t h t h a t a f f e c t e d by o t h e r branches of i n d u s t r y .

* T r a n s l a t e d by E . A. Nephew, OIWL/NSF Environmental Program.

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The e x i s t e n c e of man today and i n t h e f u t u r e is u n t h i n k a b l e w i t h o u t

t h e a v a i l a b i l i t y o f l a r g e q u a n t i t i e s of r a w materials and energy.

S h o r t a g e s i n v a r i o u s r a w materials a r e a l r e a d y v i s i b l e on t h e world

market. The w o r l d ' s supply of m i n e r a l s i s l i m i t e d . Hence, i t is

v i t a l l y n e c e s s a r y t o u t i l i z e t h e s e r e s o u r c e s s p a r i n g l y and e f f i c i e n t l y .

The most advantageous methods of e x t r a c t i n g m i n e r a l commodities

from t h e e a r t h are s u r f a c e mining and d r i l l i n g . Both methods are g a i n i n g

i n importance because of t h e b e t t e r working c o n d i t i o n s and g r e a t e r economy

which they o f f e r . I n a d d i t i o n , t h e y a s s u r e t h e most complete recovery of

t h e mineral d e p o s i t s .

S u r f a c e mining a f f e c t s t h e environment i n s p e c i a l ways. T h e e x t e n t of

i t s e f f e c t can b e v i s u a l i z e d when one s t o p s t o c o n s i d e r t h a t man c u r r e n t l y

t r a n s p o r t s a g r e a t e r mss of s o l i d material t h a n a l l of t h e rivers of t h e

world combined. The t o t a l q u a n t i t y of s o l i d s t r a n s p o r t e d by r i v e r s , of

which some 90% i s d e p o s i t e d on c o n t i n e n t a l s h e l v e s , amounts t o 1 2 b i l l i o n

cubic m e t e r s p e r year. I t is estimated t h a t by t h e y e a r 2000, man w i l l

move s o m e 30 b i l l i o n t o n s of sand, g r a v e l and s t o n e a n n u a l l y . Energy

requirements f o r t h e s a m e y e a r w i l l amount t o t h e e q u i v a l e n t of 2 3 b i l l i o n

t o n s df c o a l . The huge amount of s p o i l m a t e r i a l which w i l l r e s u l t f r o m

such massive mining is n o t even e s t i m a t e d . These numbers c l e a r l y show

t h e g r e a t impact which the mineral e x t r a c t i o n i n d u s t r y w i l l have on t h e

environment. Man u r g e n t l y needs r a w materials. The achievements of

technology have provided him with a means of r e s t o r i n g t h e l a n d t o u s e f u l

a g r i c u l t u r a l purposes a f t e r mining o p e r a t i o n s a r e completed. Further-

more, t h i s can be done economically.

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Some 95 m i l l i o n t o n s of brown c o a l a r e produced a n n u a l l y i n t h e

Rhineland area, r e s u l t i n g i n about 190 m i l l i o n cubic meters of s p o i l

material. Our mining o p e r a t i o n s are i n d i r e c t proximity t o l a r g e popula-

t i o n c e n t e r s and a r e l o c a t e d on s o m e of the m o s t f e r t i l e l a n d areas of

Germany. The r e c l a m a t i o n of these l a n d s poses v a r i e d and complex problems

t o t h e mining i n d u s t r y . The e f f o r t s of t h e brown coal i n d u s t r y i n the

a r e a s of l a n d r e c l a m a t i o n , p o p u l a t i o n r e s e t t l e m e n t , and t h e c r e a t i o n of

a new i n f r a s t r u c t u r e go f a r beyond t h e r e l a t i v e l y modest l e g a l requirements

and a r e l a r g e l y f i n a n c e d by t h e mining i n d u s t r y i t s e l f . W e p e r c e i v e it a s

o u r r e s p o n s i b i l i t y t o employ t h e most up-to-date methods and knowledge i n

o u r l a n d r e c l a m a t i o n programs. This means comprehensive p l a n n i n g and the

improvement of l a n d use p a t t e r n s wherever p o s s i b l e . In resettling villages

we n o t only concern o u r s e l v e s w i t h p u r e l y t e c h n i c a l and a d m i n i s t r a t i v e

procedures, b u t also s t r i v e t o e f f e c t s o l u t i o n s i n t h e social area which

w i l l meet w i t h t h e approval of f u t u r e g e n e r a t i o n s .

Notwithstanding t h i s g r e a t concern f o r t h e common good, t h e d i r e c t o r s

of o u r company must a l s o keep c l e a r l y i n mind t h a t t h e Rheinische Braun-

kohlenwerke A.G. i s a p r i v a t e f i r m t h a t must make a p r o f i t and i s faced

w i t h heavy c o m p e t i t i o n . C l e a r l y , a c o n f l i c t can o c c a s i o n a l l y a r i s e between

o u r p r i v a t e economic s e l f i n t e r e s t and o u r concern f o r t h e w e l f a r e of

s o c i e t y as a whole. By determined e f f o r t , however, we have found ways t o

r e s o l v e t h e s e problems. By i n t r o d u c i n g t h e m o s t modem mining techniques

and automation, we have been able t o reach t h e c u r r e n t maximum i n produc-

tivity.

One i m p o r t a n t problem which w e f a c e i s a s s u r i n g an adequate w a t e r

supply t o a g r i c u l t u r e , i n d u s t r y and t h e people of o u r r e g i o n , a r e g i o n

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having an area of about 3000 km

L
. T h i s g o a l is b e i n g accomplished by

c o n s t r u c t i n g new water works and by making c o n s t a n t measurements of t h e

h y d r o l o g i c a l c o n d i t i o n s of t h e region. I n West Germany, t h e demand f o r

w a t e r w i l l double by t h e y e a r 2000. The concern f o r a s s u r i n g an adequate

water supply t o m e e t t h e needs o f t h e p o p u l a t i o n and of i n d u s t r y is g r e a t

i n a l l i n d u s t r i a l i z e d regions. We, too, are f o r c e d t o redouble o u r e f f o r t s

i n this field. The Rheinische Braunkohlenwerke A.G. has proposed a p r o j e c t

which would h e l p meet t h e water needs of a v a s t region. When brown c o a l

i s mined by s u r f a c e mining, l a r g e b a s i n s r e s u l t from removing t h e b i l l i o n s

of t o n s of c o a l . Our p r o j e c t i n v o l v e s t h e use of two such deep h o l e s

which w i l l be formed d u r i n g mining a t Garsdorf and Hambach. Complete

e x t r a c t i o n of t h e c o a l d e p o s i t s i n t h e v i c i n i t y of Hambach w i l l r e s u l t

i n an enormous h o l e w i t h a volume o f 2 . 5 b i l l i o n c u b i c meters. This

volume i s g r e a t e r t h a n t h e t o t a l c a p a c i t y of a l l dam r e s e r v o i r s i n

Germany. F i l l i n g up such a g i g a n t i c b a s i n w i t h groundwater would

r e q u i r e a p r o h i b i t i v e l y long p e r i o d of t i m e . For t h i s r e a s o n , w e are

proposing t o c o n s t r u c t s u b t e r r a n e a n t u n n e l s t o conduct w a t e r f r o m t h e

Rhine River t o t h e s i t e . Water could t h e n be s t o r e d as needed and used

t o supply growing demands f o r w a t e r i n Germany and f o r e i g n c o u n t r i e s as

well. I n c a r r y i n g o u t t h i s p r o j e c t , t h e Rheinische Braunkohlenwerke A.G.

w i l l make a s u b s t a n t i a l c o n t r i b u t i o n towards improving t h e i n f r a s t r u c t u r e

of t h e whole Rhineland r e g i o n .

The brown c o a l mining i n d u s t r y has long s t r i v e n t o m e e t t h e twin

g o a l s of p r o t e c t i n g n a t u r e and improving t h e q u a l i t y of t h e environment.

S i n c e t h e mining of brown c o a l f i r s t began on a commercial b a s i s , some

4 b i l l i o n t o n s have been mined i n W e s t Germany. The t o t a l a r e a of l a n d

 71

d i s t u r b e d by brown coal mining amounts t o 53,000 a c r e s , of which 33,000

a c r e s have been reclaimed. S i n c e 1950, we have i n c l u d e d t h e costs of

l a n d r e c l a m a t i o n , v i l l a g e r e s e t t l e m e n t , w a t e r supply, and emissions

c o n t r o l i n o u r o p e r a t i n g cost p r o j e c t i o n s . This f u l l y meets a l l of the

b a s i c requirements of t h e European Clean A i r C h a r t e r .

Modern s u r f a c e mining unavoidably a l t e r s t h e e n t i r e landscape.

S t r a t a of r o c k , c l a y , and g r a v e l which l i e above t h e m i n e r a l d e p o s i t

must be completely removed, l e a d i n g t o t o t a l d e s t r u c t i o n of a l l v e g e t a t i o n

and u s e f u l s u r f a c e l a n d s . The overburden which i s removed may be de-

p o s i t e d i n s p o i l p i l e s o r used t o r e f i l l t h e excavated a r e a s a f t e r mining

i s completed. I f t h e l a t t e r i s done, t h e l a n d can be r e s t o r e d f o r u s e f u l

purposes and r e i n t e g r a t e d i n t o t h e o v e r a l l landscape. To be s u r e , t h e

g e o l o g i c a l s t r u c t u r e and topography of former mining areas are v a s t l y

a l t e r e d , b u t n o t n e c e s s a r i l y i n a disadvantageous manner. A carefully

planned and s u p e r v i s e d r e s t o r a t i o n program can produce new l a n d having

a mre f a v o r a b l e o v e r a l l s t r u c t u r e than b e f o r e .

H e r e i n t h e Rhineland it w a s c l e a r t o us from t h e beginning t h a t

r e c l a m a t i o n of d i s t u r b e d areas could n o t be l i m i t e d t o merely r e s t o r i n g

t h e land t o a g r i c u l t u r a l or f o r e s t uses. N e i t h e r should we a t t e m p t t o

r e t u r n t h e l a n d t o i t s o r i g i n a l form. Rather t h e goal of t h e planning

should be r e c u l t i v a t i o n based on sound e c o l o g i c a l p r i n c i p l e s . The r e -

c u l t i v a t e d l a n d should a l s o s e r v e as r e c r e a t i o n a l a r e a s .

Because of t h e r i c h t o p s o i l i n t h e E r f t R i v e r b a s i n , t h e main

o b j e c t i v e of r e c l a m a t i o n i n t h i s area h a s been t o r e s t o r e t h e l a n d t o

agricultural productivity. During mining, t h e v a l u a b l e l o e s s t o p s o i l

. i s saved and l a t e r s p r e a d o u t t o form t h e t o p l a y e r of r e s t o r e d l a n d s .
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A s p e c i a l h y d r a u l i c process has been developed f o r t h i s purpose. The

loess, i n form of a s l u r r y , is pumped through pipes t o f i e l d s which

have been s p e c i a l l y subdivided by small temporary d i k e s . The M i n i s t r y

f o r Food, A g r i c u l t u r e and F o r e s t s of the S t a t e of North Rhine WestPhalia

supported t h e development of this new p r o c e s s i n i t s e a r l y s t a g e s .

The newly r e s t o r e d a g r i c u l t u r a l l a n d must be p r o t e c t e d a g a i n s t

wind e r o s i o n . S u i t a b l y s e l e c t e d trees and bushes are p l a n t e d i n s t r i p s

t o form wind breaks. The reward f o r c a r e f u l and thorough r e s t o r a t i o n

p r a c t i c e s i n t h e Rhineland brown c o a l area has been good h a r v e s t s and

high land productivity. A f t e r o n l y a few y e a r s , t h e c r o p y i e l d s are

as h i g h as i n u n d i s t u r b e d l a n d r e g i o n s .

The c o n d i t i o n s f o r s u c c e s s f u l l a n d r e c l a m a t i o n i n t h e Rhineland

a r e very f a v o r a b l e . Here w e have a v a i l a b l e p u r e loess f o r a g r i c u l t u r a l

r e c l a m a t i o n and a mixture of l o e s s , g r a v e l , and sand f o r f o r e s t l a n d

reclamation. I n o t h e r areas of t h e world where s u l f u r - c o n t a i n i n g m a r c a s i t e

is exposed as a r e s u l t of mining o p e r a t i o n s , e x t e n s i v e p r e c o n d i t i o n i n g of

the s o i l i s needed t o e s t a b l i s h t h e p r o p e r l i v i n g c o n d i t i o n s for h i g h e r

p l a n t forms.

The r e c l a m a t i o n of l a n d f o r f o r e s t r y purposes o r i g i n a l l y began i n t h e

Rhineland d u r i n g t h e 1920's. A t first, e x p e r t s w e r e very s k e p t i c a l t h a t

t h e e f f o r t s of t h e brown c o a l mining i n d u s t r y would meet w i t h s u c c e s s .

Many b e l i e v e d t h a t v e g e t a t i o n could never be r e e s t a b l i s h e d on such

churned-up l a n d s and t h a t t h e areas w e r e d e s t i n e d t o remain d e s o l a t e

wastelands. These f e a r s have proved unfounded. Today w e know t h a t t r e e

growth i s f u l l y possible even on poor s o i l s , and t h a t t h e f o r e s t s are n o t

l i m i t e d t o w o r t h l e s s q u i c k growth timber b u t can i n c l u d e many d i f f e r e n t

 73

t y p e s of commercially v a l u a b l e t i m b e r . Beginning i n 1955, we have e n r i c h e d

t h e s o i l of d i s t u r b e d l a n d s b e i n g r e c l a i m e d f o r f o r e s t r y by adding a t o p

l a y e r o f loess, sand, and g r a v e l . Some 36 d i f f e r e n t t y p e s of trees have

been s u c c e s s f u l l y p l a n t e d .

I n t h e immediate postwar y e a r s , l a r g e numbers of p o p l a r s w e r e

p l a n t e d on unreclaimed l a n d s from brown coal s u r f a c e mining t o p r o v i d e

a quick cover of v e g e t a t i o n . Today, however, they serve mainly as a

temporary form of p r o t e c t i o n f o r t h e more v a l u a b l e trees which have

been p l a n t e d i n t h e meantime. The w i l d l i f e of t h e s e new f o r e s t l a n d s

i s even more v a r i e d i n n a t u r e t h a n o r i g i n a l l y . This greater variety

r e p r e s e n t s a d i s t i n c t s u c c e s s of our f o r e s t r y program. Also, a number

o f v a r i e t i e s of w a t e r f o w l have s e t t l e d i n t h e l a k e s , i n c l u d i n g gulls

and n o r t h e r n ducks. The l a k e s are w e l l s t o c k e d w i t h f i s h by the F o r e s t r y

D i v i s i o n o f t h e Rheinische Braunkohlenwerke A.G. Mining Company i n co-

o p e r a t i o n w i t h t h e S t a t e F o r e s t r y S e r v i c e and p r i v a t e s p o r t - f i s h e r m e n ' s

associations.

The former s u r f a c e mined a r e a s a r e more and m o r e becoming a f u l l y

i n t e g r a t e d and r e c u l t i v a t e d r e g i o n i n t h e midst of a densely p o p u l a t e d

i n d u s t r i a l area. The r e c r e a t i o n a r e a s o f l a k e s and f o r e s t s which have

been c r e a t e d s e r v e a l a r g e s u r r o u n d i n g r e g i o n and a r e v i s i t e d by e v e r

i n c r e a s i n g numbers of people s e e k i n g rest and r e l a x a t i o n .

The a r t i f i c i a l l a k e s c r e a t e d i n t h e l a n d s c a p e a r e o f s p e c i a l impor-

tance. S y s t e m a t i c p l a n n i n g o f s h o r e l i n e s , bays, and coves and s e n s i b l e

r e v e g e t a t i o n t o g e t h e r with d i r e c t e d e f f o r t s t o s u p p o r t l o c a l f l o r a and

fauna have combined t o m a k e t h e a r t i f i c i a l l a k e s i n d i s t i n g u i s h a b l e from

n a t u r a l ones. Swimming areas, s a i l b o a t f a c i l i t i e s , and campgrounds were

 74

b u i l t and a r e a s t r o n g a t t r a c t i o n t o t h e p u b l i c . The r e c r e a t i o n a l areas

are b a r r e d t o v e h i c u l a r t r a f f i c . P a r k i n g areas a r e provided on t h e i r

periphery. From t h e r e , h i k i n g t r a i l s l e a d t o t h e v a r i o u s p o i n t s of

interest.

F u r t h e r development of t h e r e c r e a t i o n a l f a c i l i t i e s and upkeep of t h e

grounds are b e i n g looked a f t e r by a special o r g a n i z a t i o n , "Zweckverband

Erholungspark V i l l e e.V." I n c o o p e r a t i o n w i t h t h e F o r e s t r y D i v i s i o n of

t h e brown-coal mining company and the S t a t e F o r e s t r y S e r v i c e , the a s s o c i a -

t i o n i s developing p l a n s f o r e x t e n d i n g t h e f o r e s t e d area f o r r e c r e a t i o n a l

purposes.

P r e s e n t e f f o r t s i n t h e Rhineland c o a l r e g i o n are i n c r e a s i n g l y d i r e c t e d

towards i n c o r p o r a t i n g l a n d which h a s been r e s t o r e d f o r a g r i c u l t u r a l

u s e s i n t o t h e r e c r e a t i o n a l program. These r e g i o n s , w i t h t h e i r hedges and

windbreaks, p a t c h e s of trees, and c u l t i v a t e d f i e l d s , are i d e a l l y s u i t e d

f o r walks o r h i k i n g . Hence, t h e y can f u l f i l l t h e d u a l needs of a g r i c u l t u r e

and r e c r e a t i o n a t t h e same t i m e . A l a n d s c a p e of c u l t i v a t e d f i e l d s , f o r e s t s ,

and l a k e s p r o v i d e s a p l e a s a n t s e t t i n g f o r r e c r e a t i o n - lands destroyed by

s u r f a c e mining are reshaped t o meet modern needs.

Much more d i f f i c u l t than l a n d r e c l a m a t i o n are the problems of a i r

and w a t e r p o l l u t i o n , n o i s e , and s o l i d w a s t e s d i s p o s a l . Here, t h e world

i s close t o the l i m i t s of t o l e r a n c e , o r i n some cases has a l r e a d y exceeded

them. The dangerous t r e n d towards e v e r g r e a t e r a i r and w a t e r p o l l u t i o n

l e v e l s must b e stopped. W e must f i n d s o l u t i o n s which w i l l p r e v e n t f u r t h e r

poisoning of our b i o s p h e r e , and such s o l u t i o n s are f u l l y p o s s i b l e . The

way t o accomplish t h i s i s t h e same as f o r any o t h e r form of t e c h n o l o g i c a l

progress. I t b e g i n s w i t h b a s i c r e s e a r c h , s t i l l i n i t s i n f a n c y w i t h respect
 75

t o environmental problems, and i t r e q u i r e s an adequate l e v e l of funding.

Because o f the ever g r e a t e r impacts on o u r environment, it is a b s o l u t e l y

n e c e s s a r y t o c o n t i n u a l l y r e d e f i n e environmental r e s e a r c h needs and t o

s e e k permanent s o l u t i o n s on an i n t e r n a t i o n a l b a s i s .

A l l i n d u s t r i a l n a t i o n s f a c e the same environmental problems. W e have

been f o l l o w i n g w i t h g r e a t i n t e r e s t the approaches and environmental pro-

t e c t i o n measures b e i n g formulated i n other c o u n t r i e s . We are p l e a s e d t o

see t h a t a t r e n d towards i n t e r n a t i o n a l c o o p e r a t i o n i s developing which

w i l l c o n t r i b u t e g r e a t l y t o p r o t e c t i n g t h e q u a l i t y of t h e environment.

Hopefully, t h i s t r e n d w i l l l e a d t o t h e f o l l o w i n g r e s u l t s :

1. The v a r i o u s n a t i o n s w i l l s t e p up b a s i c r e s e a r c h on

environmental problems.

2. An exchange of i n f o r m a t i o n and e x p e r i e n c e w i l l be s e t

up between t h e v a r i o u s c o u n t r i e s .

3. E f f e c t i v e environmental p r o t e c t i o n l a w s w i l l be adopted

which are b i n d i n g on a l l n a t i o n s so t h a t c o n s e r v a t i o n

measures w i l l n o t a f f e c t t h e r e l a t i v e c o m p e t i t i v e n e s s .

The European Advisory Council proclaimed t h e y e a r 1970 as "Nature

P r o t e c t i o n Year." This w a s n o t done o u t of concern f o r a f e w b e a u t i e s

of n a t u r e , b u t because whole segments of n a t u r e v i t a l t o mankind's w e l l -

b e i n g f a c e d e s t r u c t i o n and d e a t h . I n t h i s s e n s e , p r o t e c t i o n of t h e

environment i s r e a l l y t h e same as t h e p r e s e r v a t i o n of mankind. I believe

t h a t I have shown t h a t many u n d e s i r a b l e environmental impacts can be

a l l e v i a t e d and many more prevented. The "Nature P r o t e c t i o n Year'' w i l l

have s e r v e d an important f u n c t i o n i f it h e l p s people become aware t h a t

n a t u r e , once an e t e r n a l , l i f e - s u s t a i n i n g p r o v i d e r of our needs, i s i n

 76

danger of becoming i r r e v o c a b l y poisoned by man h i m s e l f . The p r e s e r v a t i o n

of n a t u r e i s w i t h i n t h e scope of mankind's v i t a l s e l f i n t e r e s t .
 77

APPENDIX I1

GERMAN SURFACE M I N I N G LAWS"

STATE LAND PLANNING LAW

From March 11, 1950

Paragraph 1

Functions of Land Planning

On March 1, 1950, t h e s t a t e l e g i s l a t u r e of North Rhine Westphalia

decreed t h e following l a w :

The f u n c t i o n of l a n d planning i s t o develop a g e n e r a l and c o l l e c t i v e

p l a n f o r o r d e r l y area development i n t h e s t a t e of North Rhine Westphalia

which answers t o t h e s o c i a l , c u l t u r a l , and economic needs of t h e a r e a and

t o s e e t o i t s adherence i n c o n c e r t w i t h t h e competent s p e c i a l m i n i s t r i e s

and a l l o t h e r a u t h o r i t i e s concerned.

Paragraph 2

S t r u c t u r e (Organization)

(I) Highest a u t h o r i t y f o r l a n d p l a n n i n g i s t h e s t a t e governor.

(2) Subordinate a u t h o r i t i e s f o r l a n d planning a r e t h e h i g h e r adminis-

t r a t i v e a u t h o r i t i e s according t o t h e r e g u l a t i o n s of t h e law.

(3) Executors of the work a r e t h e l a n d planning commissions.

They a r e c o r p o r a t i o n s of t h e p u b l i c law and a r e s u b j e c t t o t h e s u p e r v i s i o n

of t h e governor i n h i s c a p a c i t y a s l a n d p l a n n i n g commissioner. They c o l l e c t

i n f o r m a t i o n about t h e p r e s e n t c o n d i t i o n i n t h e planning a r e a and develop

* T r a n s l a t e d by M. T. Nephew, c o n s u l t a n t t o t h e ORNL/NSF Environmental

P r o g r am.
 78

together with a l l p e r t i n e n t a u t h o r i t i e s a far-reaching constructive t o t a l

plan f o r the area. They a d v i s e t h e l a n d p l a n n i n g a u t h o r i t i e s . The

composition and l e g a l r e l a t i o n s of l a n d p l a n n i n g commissions are governed

by by-laws. The by-laws need t h e approval of the s t a t e governor.

Paragraph 3

D r a f t i n g of t h e P l a n Making it L e g a l l y Binding

(1) To c a r r y o u t t h e f u n c t i o n s according t o Paragraph 1 of this

l a w , t h e l a n d p l a n n i n g commissions must d r a f t area development p l a n s i n

agreement w i t h t h e p r o p e r a u t h o r i t i e s and w i t h the p a r t i c i p a t i o n of t h e

autonomous c o r p o r a t i o n s concerned.

Area development p l a n s are p l a n s which b a s i c a l l y r e g u l a t e t h e o r d e r l y

use o f ' t h e l a n d , w i t h s p e c i a l c o n s i d e r a t i o n f o r t h e needs of a g r i c u l t u r e

and f o r e s t r y , water-use, i n d u s t r y , t r a f f i c , b u i l d i n g , as w e l l as f o r t h e

p r o t e c t i o n of c u l t u r e and r e c r e a t i o n .

(2) Upon recommendation by t h e l a n d p l a n n i n g commission, t h e l a n d

planning a u t h o r i t y can d e c l a r e as l e g a l l y b i n d i n g t h e proposed area

development p l a n , e i t h e r as a whole o r i n p a r t s of t h e c o u n t i e s and

townships.

(3) The l a n d p l a n n i n g a u t h o r i t i e s may, i n agreement w i t h t h e

r e s p e c t i v e l a n d p l a n n i n g commission, t h e s p e c i a l m i n i s t r i e s , and o t h e r

concerned offices, demand c o n s i d e r a t i o n of l a r g e r a r e a s w i t h more t h a n

l o c a l s i g n i f i c a n c e i n accordance w i t h l e g a l r e g u l a t i o n s .

Paragraph 4

Duty t o Report and R i g h t t o Oppose

(1) A l l a u t h o r i t i e s , c o r p o r a t i o n s , and b u s i n e s s e s are r e q u i r e d t o

supply i n f o r m a t i o n t o t h e a u t h o r i t i e s and commissioners about p l a n s i n

 79

their p a r t i c u l a r area if such p l a n s are o r may become i m p o r t a n t t o t h e

land planning.

(2) The commissions can oppose measures of towns and c o u n t i e s

which are n o t i n agreement w i t h area development p l a n s o r other g o a l s

of l a n d p l a n n i n g . The o p p o s i t i o n w i l l d e l a y t h e measure. The d e c i s i o n

l i e s w i t h t h e s t a t e governor ( i n c o n s u l t a t i o n w i t h t h e i n t e r e s t e d minis-

t r i e s ) i n h i s c a p a c i t y as l a n d p l a n n i n g a u t h o r i t y .

Paragraph 5

Exec u t i o n

The s t a t e government i n agreement w i t h the l a n d p l a n n i n g commission

of t h e s t a t e l e g i s l a t u r e w i l l s e t up t h e n e c e s s a r y l e g a l measures t o i n -

s u r e t h e e x e c u t i o n of t h i s l a w .

Paragraph 6

E f f e c t i v e Date

This l a w w i l l become e f f e c t i v e upon proclamation.

 80

L A W CONCERNING OVERALL LAND PLANNING I N THE RHINE BROWN COAL AREA

A p r i l 25th, 1950 (GS.NW. P. 450)

On 1 3 A p r i l 1950 t h e S t a t e L e g i s l a t u r e North Rhine Westphalia

e n a c t e d t h e following l a w :

Paragraph 1

Plan

(1) Within t h e framework of S t a t e p l a n n i n g l e g i s l a t i o n f o r t h e

S t a t e of North Rhine Westphalia and as a p a r t of t h e S t a t e p l a n n i n g , a

complete land-use p l a n should b e e s t a b l i s h e d t o e n s u r e an o r d e r l y

development of t h e *ne brown c o a l a r e a i n t h i s r e g i o n .

(2) The complete p l a n i n c l u d e s :

a. t h e d e s i g n a t i o n of areas wherein mining o p e r a t i o n s and i n d u s t r i a l

f a c t o r i e s may be developed and of areas which s h a l l be r e s e r v e d f o r

a g r i c u l t u r a l and f o r e s t r y u s e as w e l l as t h e d e s i g n a t i o n of s e t t l e m e n t

areas,

b. t h e d e s i g n a t i o n of towns, parts o f towns, and s i n g l e d w e l l i n g u n i t s

which a r e t o b e removed i n t h e i n t e r e s t o f t h e mining o p e r a t i o n s and

t h e p l a c e s where t h e i n h a b i t a n t s s h a l l be r e s e t t l e d ,

c. t h e d e s i g n a t i o n of a r e a s wherein t r a f f i c highways, t r a i n s of a l l

s o r t s , energy and w a t e r t r a n s m i s s i o n l i n e s may be e s t a b l i s h e d o r

r e l o c a t e d , a s w e l l a s of such areas where t h e y are t o b e removed,

d. t h e d e s i g n of waterways,

e. t h e a g r i c u l t u r a l and f o r e s t r y and g e n e r a l landscape d e s i g n w i t h

c o n s i d e r a t i o n f o r p r e s e r v i n g h i s t o r i c s i t e s , and t h e c o n s e r v a t i o n of

n a t u r a l f e a t u r e s and s c e n i c p o i n t s of i n t e r e s t .
 Paragraph 2*

L i m i t s of t h e Planning Area

(1) The p l a n n i n g a r e a i n c l u d e s :

I n t h e governmental d i s t r i c t of Cologne

a. t h e county of Bergheim,

b. i n t h e county o f Cologne:

t h e townships Stommeln, Geyen, S i M e r S d O r f , Pulheim, Brauweiler,

Ltjvenich, Frechen, Hiirth and Briihl,

c. i n t h e county of Bonn:

t h e p a r t of the township Sechtem which l i e s w e s t of t h e road

Schwadorf -Kardorf ,
d. i n t h e county Euskirchen:

t h e towns K i e r d o r f , L i b l a r , Bleisheim, W e i l e r s w i s t , M e t t e r n i c h ,

Miiggenhausen, Vernich, Niederberg, B o r r , Friesheim, Erp, Dorweiler,

Pingsheim, Lechenich, Dirmerzheim and Gymnich, t h e c i t y of Ziilpich,

Bessenich, Langendorf and Merzenich;

e. i n t h e c i t y of Cologne:

t h e a r e a n o r t h of M i l i t a r r i n g s t r a p e between Niehl and Bickendorf;

I n t h e governmental d i s t r i c t of Aachen:

a. i n t h e county of Diiren:

t h e townships W e i s w e i l e r , Frenz, L a m e r s d o r f , P i e r , Lucherberg,

Luchem, Geich-Obergeich, Echtz; from t h e township D e r i c h s w e i l e r

and Gtirzenich t h a t p a r t which i s t o t h e n o r t h of the r o a d

DUren-Aachen, and

also t h e townships Mariaweiler-Hoven, B i r k e s d o r f , Merken, Selhausen,

"Ordinance a b o u t changes i n t h e p l a n n i n g a r e a f o r t h e d r a f t i n g of
a complete p l a n i n the Rhine brown coal area, January 5 , 1952 (GVNW P.5)
 82

Huchem-Stammeln, Arnoldsweiler, N i e d e r z i e r , O b e r z i e r , E l l e n ,

Morschenich, Merzenich, Golzheim, G i r b e l s r a t h , Eschweiler u./Feld,

Oberbolheim, NGrvenich, Rath, Wissersheim, t h e o f f i c e of F e t t w e i s

and t h e townships Eggersheim, Hochkirchen, I r r e s h e i m and Poll,

b. i n t h e county of J u l i c h :

the townships Hambach, S t e i n s t r a p , Inden, D i i r w i p , Lohn, Laurenzberg

and Langweiler;

c. i n t h e county of Aachen:

t h e township Kinzweiler and t h a t p a r t of t h e township Eschweiler

which l i e s n o r t h of t h e road Diiren-Aachen;

d. i n t h e county of Erkelenz:

t h e townships Holzweiler, Immerath, Borschemich, Keyenberg,

Kuckhoven and Lb'venich ;

I n t h e governmental d i s t r i c t of Dusseldorf:

i n t h e county Grevenbroich t h e townships Garzweiler, Hochneukirch,

JGchen, E l f g e n , Bedburdyk, Grevenbroich, G u s t o r f , Frimmersdorf,

Neurath and Rommerskirchen.

(2) The p l a n n i n g a r e a may be changed by t h e Governor i n h i s f u n c t i o n

as s t a t e p l a n n i n g commissioner. The change takes place upon the p r o p o s a l

of t h e p l a n n i n g committee (brown coal committee), and t h e p r o p o s a l is

forwarded by t h e d i s t r i c t governor, t h e head of t h e d i s t r i c t , t o the

S t a t e l a n d p l a n n i n g community.

Paragraph 3

Formulating t h e P l a n and D e c l a r i n g it Legally Binding

(1) The p l a n w i l l be d r a f t e d by the "Planning C o m m i t t e e f o r the

Rhine Brown-coal A r e a ' ' (brown coal committee). The brown-coal committee
 83

i s a s p e c i a l committee o f the S t a t e Land Planning Commission f o r t h e

Rhineland. I t must seek the p a r t i c i p a t i o n of s t a t e a g e n c i e s which a r e

r e s p o n s i b l e f o r t h e e x e c u t i o n of the d e f i n i t e l y planned measures. The

p l a n i s t o b e open f o r i n s p e c t i o n by a l l a f f e c t e d p a r t i e s . The open

i n s p e c t i o n time should be announced by p u b l i c n o t i c e w i t h an i n v i t a t i o n

t o p r e s e n t t o t h e brown coal committee any o b j e c t i o n s t o t h e p l a n w i t h i n

a c e r t a i n time p e r i o d . I f the brown coal committee does n o t a c c e p t

these o b j e c t i o n s as v a l i d , they w i l l be s u b m i t t e d t o t h e governor,

t o g e t h e r w i t h t h e o p i n i o n s of the brown c o a l committee a t the t i m e of

t h e submission of the p l a n .

(2) The governor i n h i s c a p a c i t y as head of t h e S t a t e planning

commission ( a f t e r c o n s u l t i n g w i t h appropriate a d v i s o r y m i n i s t e r s )

d e c l a r e s t h e p l a n t o be l e g a l l y binding.* I f agreement cannot be

reached, the s t a t e government makes t h e d e c i s i o n . The p l a n i s t h e n

l e g a l l y b i n d i n g o n a l l a u t h o r i t i e s and p u b l i c and l e g a l c o r p o r a t i o n s

of the r e g i o n .

(3) The p l a n may be changed a c c o r d i n g t o t h e same procedure as

t h a t by which i t w a s d r a f t e d , i f circumstances demand such changes.

(4) The d r a f t i n g and t h e d e c l a r a t i o n of l e g a l i t y of the p l a n

may o c c u r i n s t a g e s as w i t h r e g a r d s t o t i m e , area, and s u b j e c t matter.

*Legally b i n d i n g d e c l a r a t i o n s have taken place on:

May 23, 1953 (GS. NW. p . 452) w i t h r e s p e c t t o p a r t i a l p l a n s
Hurth and B e r r e n r a t h
J u l y 29, 1954 (GS. NW. p. 452) w i t h r e s p e c t t o Hochhalde V o l l r a t h
August 29, 1956 ( G S . NW. p . 453) w i t h r e s p e c t t o Kkigshoven-Bedburg
August 29, 1956 (GS. NW. p. 453) w i t h r e s p e c t t o Ziilpich-Siidfeld
A p r i l 5, 1957 (GV. NW. p . 95) w i t h respect t o Brwl
J a n u a r y 30, 1957 (GV. NW. p. 27) w i t h r e s p e c t t o Fischbach
October 2 2 , 1957 (GV. NW. p. 263) w i t h r e s p e c t t o p a r t i a l p l a n
Moderath
 84

(5) Persons l i v i n g i n t h e a f f e c t e d r e g i o n , as w e l l as owners and

managers of i n d u s t r i a l p l a n t s and b u s i n e s s o p e r a t i o n s i n t h e area, a r e

o b l i g e d t o g i v e a l l necessary i n f o r m a t i o n and r e q u i s i t e d a t a t o t h e

brown c o a l committee o r t o one of i t s commissioned members i f such

i n f o r m a t i o n and d a t a concerning mining o p e r a t i o n s i s n o t a v a i l a b l e a t

f h e a p p r o p r i a t e s t a t e mining agency.

A l l p u b l i c a u t h o r i t i e s and l e g a l c o r p o r a t i o n s are o b l i g e d t o c o o p e r a t e

h i every respect i n t h e d r a f t i n g of t h e p l a n .

(6) I n d u s t r i a l p l a n s of mining companies i n t h e a f f e c t e d area and

and l a n d use and c u l t i v a t i o n p l a n s of townships are t o be r e c o n c i l e d w i t h

the o v e r a l l p l a n .

Paragraph 4

Planning Committee f o r the Rhine Brown Coal A r e a

(brown c o a l committee)

(1) M e m b e r s of t h e committee are:

a. t h e d i s t r i c t governors i n Cologne, Aachen, and DGsseldorf,

b. t h e head of t h e s t a t e mining agency,

c. the land p l a n n i n g commissioner of t h e j o i n t l a n d p l a n n i n g group

Rhineland,

d. t h e p r e s i d e n t of t h e m i n i s t r y of a g r i c u l t u r e i n Bonn,

e. a r e p r e s e n t a t i v e of t h e farmers' union i n t h e area,

f. t h e head of the S t a t e l a n d s e t t l e m e n t o f f i c e , *

g. t h r e e r e p r e s e n t a t i v e s of brown c o a l mining i n t e r e s t s ,

*Since renamed: North Rhine O f f i c e f o r Land R e d i s t r i b u t i o n and

S e t t l e m e n t according t o paragraph 1 / 2 Law t o S i m p l i f y County S e t t l e -
ment, November 19, 1957 (GV. NW. p. 2 7 1 ) .
 85

h. t h r e e r e p r e s e n t a t i v e s of mining unions,

i. f i v e r e p r e s e n t a t i v e s of t h e county governments ,

k. t h r e e r e p r e s e n t a t i v e s of t h e farmers ,

1. one r e p r e s e n t a t i v e of c r a f t s and t r a d e s ,

m. one r e p r e s e n t a t i v e of t h e power i n d u s t r y ,

n. one r e p r e s e n t a t i v e of stoneware i n d u s t r y ,

0. one r e p r e s e n t a t i v e of t h e i n d u s t r i a l union r e p r e s e n t i n g chemistry,

paper, and ceramics.

The D i r e c t o r s of t h e d i s t r i c t mining o f f i c e s K 5 l n 1 and Aachen-

SEd and of t h e d i s t r i c t f o r e s t r y o f f i c e s K5ln and Aachen, as w e l l a s

one r e p r e s e n t a t i v e of t h e S t a t e c u l t u r a l o f f i c e and t h e m i n i s t r y of

t r a f f i c , p a r t i c i p a t e a s e x p e r t s a t t h e meetings of t h e brown c o a l

committee.

(2) Subcommittees a r e t o be formed f o r t h e p l a n n i n g of p a r t i c u l a r

regions and t h e treatment of s p e c i f i c measures. One r e p r e s e n t a t i v e

each from t h e townships and from t h e mining o p e r a t i o n involved should

be a member of t h e subcommittee.

(3) The non-governmental members of t h e committee a r e t o be

appointed and withdrawn by the participating member organizations

according t o r e g u l a t i o n . *

(4) The heads of o f f i c i a l agencies may d e l e g a t e a number of t h e i r

group t o a c t i n t h e i r b e h a l f . For a l l o t h e r members a s u b s t i t u t e i s

t o be appointed.

*November 2 1 , 1950, p. 372. T h e i r payment i s r e g u l a t e d by t h e

law concerning compensation t o honorary members of committees (May 15,
1958 GV. NW. p . 193) according t o f i g u r e 10 of t h e p e r t a i n i n g l i s t .
 86

(5) The members o f t h e brown coal committee are t o pledge t o t h e

p r e s i d e n t t h e i r c o n s c i e n t i o u s f u l f i l l m e n t of their o b l i g a t i o n s . The

r e g u l a t i o n s a g a i n s t b r i b e r y and c o r r u p t i o n and the r e v e a l i n g of secrets

f o r non-government p e r s o n n e l a p p l y . (RGB1. I p. 351)

Paragraph 5

Meetings and A d m i n i s t r a t i o n of the Brown C o a l Committee

(1) The s t a t e governor a p p o i n t s the chairman. The chairman s h a l l be

t h e d i s t r i c t governor i n whose d i s t r i c t t h e main p a r t of l a n d r e c u l t i v a t i o n

w i l l occur. The chairman c a l l s a s e s s i o n a t l e a s t twice a y e a r . In

a d d i t i o n , t h e committee must convene i f a t least 1/5 of the members named

i n paragraph 4 , 1 a. t o 0. so d e s i r e .

(2) The committee w i l l s e t up a d i s t r i c t p l a n n i n g o f f i c e t o conduct

day-to-day business.

(3) The committee d e c r e e s a s t a n d i n g o r d e r of b u s i n e s s . I t must

c o n t a i n r e g u l a t i o n s about t h e purpose, o r g a n i z a t i o n , and s e a t of t h e

agency.

Paragraph 6

Other O b l i g a t i o n s of t h e Committee

The committee h a s t h e r i g h t and d u t y t o c o n t i n u o u s l y s u p e r v i s e

the o r d e r l y adherence t o t h e p l a n and t o immediately report d e f i c i e n c i e s

t o t h e appropriate a g e n c i e s , as w e l l as t o propose f i n e s .

Paragraph 7

Procurement of Land

(1) C u r r e n t l a w s apply t o e x p r o p r i a t i o n s n e c e s s a r y f o r the imple-

mentation of t h e complete p l a n .
 87

(2) I n t h e c a s e of ceding p r o p e r t y t o mining o p e r a t i o n s according

t o paragraph 135 f f o f the common mining l a w f o r t h e P r u s s i a n s t a t e s o f

24, June 1865 ( P r . GS p. 705 f f ) , l e g i t i m a t e compensation can be

expected and claimed upon r e q u e s t i n t h e form of e q u i v a l e n t l a n d

i n s t e a d of money compensation i n s o f a r as t h e l a w s permit such.

Paragraph 8

Enforcement P r o v i s i o n s

(1) Persons who i n s p i t e o f w r i t t e n demand n e g l e c t t o submit

within t h e s t a t e d t i m e t h e information necessary f o r t h e d r a f t i n g ,

changing, and e x e c u t i o n of t h e p l a n (paragraph 3 , 5) or who a r e

r e s p o n s i b l e f o r such n e g l e c t a l o n e o r t o g e t h e r w i t h o t h e r s may be

f i n e d upon r e q u e s t by t h e committee by t h e S t a t e governor up t o

50,000 DM; i n case of r e p e t i t i o n , up t o 100,000 DM.

(2) The r e s p e c t i v e a u t h o r i t i e s are n o t p r e v e n t e d by t h e s e

r e g u l a t i o n s from u s i n g compulsory means, a c c o r d i n g t o paragraph 132

of the s t a t e a d m i n i s t r a t i o n l a w 30, August 1883 ( P r . GS p. 195)" t o

e n s u r e an a c t i o n o r an omission. The committee i s a u t h o r i z e d t o

r e q u e s t a p p r o p r i a t e measures.

Paragraph 9

Complaints

(1) Complaints about t h e r e g u l a t i o n s and d e c i s i o n s concerning

paragraphs 3 and 6 and 8 of t h i s l a w may b e made t o t h e s t a t e governor

of t h e s t a t e North m i n e Westphalia.

*Now paragraph 58 o f t h e a d m i n i s t r a t i v e ( e x e c u t i v e ) l a w 23,

J u l y 1957 (GV. NW. p. 216).
 88

(2) The complaint t o t h e s t a t e governor must be made w i t h i n a

p e r i o d of one month a f t e r n o t i f y i n g t h e d i s t r i c t governor of t h e

reasons for t h e complaint. I f t h e d i s t r i c t governor has f a i l e d t o

a d j u d i c a t e t h e complaint i n a manner s a t i s f a c t o r y t o t h e complainant,

t h e s t a t e governor w i l l decide t h e case i n c o n s u l t a t i o n with h i s

ministerial experts.

Paragraph 10

Execution of t h e Law

The s t a t e governor of North Rhine Westphalia i n agreement w i t h t h e

competent committees of t h e s t a t e l e g i s l a t u r e i s s u e s t h e decrees necessary

f o r t h e execution of t h i s law.* He may o r d e r o t h e r m i n i s t e r s t o i s s u e

these decrees.

Paragraph 11

E f f e c t i v e Date

This law w i l l be e f f e c t i v e t h e day following i t s o f f i c i a l p r o c l a -

mation.

"Compare VO about c a l l i n g of non a d m i n i s t r a t i v e members of t h e

Brown c o a l committee from November 2 1 , 1950 (GS. NW. p . 454).
 89

L A W CONCERNING THE ESTABLISHMENT OF A COMMUNITY

FUND W I T H I N THE M I N E BROWN-COAL AREA

From A p r i l 25, 1950 (GS. NW. p . 453)

On 13, A p r i l 1950, t h e s t a t e l e g i s l a t u r e of North Rhine Westphalia

enacted the following l a w :

Paragraph 1

E s t a b l i s h m e n t , N a m e , and Seat of the Fund

(1) For t h e brown-coal mining o p e r a t i o n s i n the Planned A r e a ,

d e s c r i b e d i n paragraph 2 of t h e l a w concerning t h e o v e r a l l p l a n n i n g i n

the Rhine brown-coal area f r o m A p r i l 25, 1950, t h e r e w i l l be e s t a b l i s h e d

a "Community Fund t o Ensure t h e R e c u l t i v a t i o n of Lands i n t h e Rhine

Brown-Coal A r e a " ( h e n c e f o r t h r e f e r r e d t o as "Fundf') .

(2) The fund is a c o r p o r a t i o n of t h e public l a w , s e a t e d i n Cologne.

Paragraph 2

Purpose of t h e Fund

(1) The purpose of t h e fund i s t o e n s u r e t h e e x e c u t i o n of e f f o r t

n e c e s s a r y f o r t h e r e c u l t i v a t i o n of areas n e g a t i v e l y a f f e c t e d by t h e

mining of c o a l , i f these a c t i v i t i e s are d e c l a r e d t o be p u b l i c r e s p o n s i -

b i l i t y by the s t a t e mining o f f i c e i n Bonn.

(2) The s t a t e mining o f f i c e i n Bonn d e c i d e s t h e necessary measures.

These i n c l u d e measures concerning mines t h a t have ceased o p e r a t i o n s

(orphan m i n e s ) .

(3) The fund s h a l l make a v a i l a b l e t h e means f o r t h e e x e c u t i o n of

t h e p r e v i o u s l y mentioned measures.

(4) The s t a t e mining o f f i c e s have a u t h o r i t y o v e r t h e fund a c c o r d i n g

t o t h e p r o v i s i o n s of mining l a w s governing mining o p e r a t i o n s .

 90

Paragraph 3

Members of t h e Fund

Members o f t h e Fund a r e a l l mining o p e r a t o r s of t h e area covered by

t h e plan. T h e i r f e e s may b e c o l l e c t e d by t h e s t a t e mining o f f i c e i n Bonn

by c o e r c i v e measures, i f n e c e s s a r y .

Paragraph 4

Governing By-Laws

The governing by-laws o f t h e fund must be determined by t h e members

w i t h i n a p e r i o d of t h r e e months a f t e r enactment of t h e l a w . They must be

s a n c t i o n e d by the m i n i s t e r f o r commerce i n agreement with t h e a p p r o p r i a t e

special ministers. The same p r o c e d u r e s h o l d s f o r changes of t h e by-laws.

I f t h e p r e s c r i b e d p e r i o d f o r d e t e r m i n a t i o n of t h e by-laws is n o t adhered

t o , t h e m i n i s t e r f o r commerce w i l l determine t h e by-laws, a l s o i n concert

w i t h t h e s p e c i a l m i n i s t e r s concerned.

Paragraph 5

C o n t r i b u t i o n s t o the Fund

(1) The members pay a minimum y e a r l y c o n t r i b u t i o n of 1 D p f per t o n

of mined r a w brown c o a l t o t h e fund. The complete c o n t r i b u t i o n f o r each

m e m b e r w i l l be determined a c c o r d i n g t o the p r o o f of tonnage of t h e p r e v i o u s

y e a r by the s t a t e mining o f f i c e .

(2) The c o n t r i b u t i o n s are d i s c o n t i n u e d i f a t t h e end o f t h e f i s c a l

y e a r assets i n t h e amount of one and one-half t h e sum of t h e y e a r l y

c o n t r i b u t i o n s have accumulated i n t h e fund.

 91

(3) I f t h e c o n t r i b u t i o n s do n o t cover t h e c o s t of t h e planned

measures, t h e fund w i l l levy f u r t h e r c o n t r i b u t i o n s i n t h e amount necessary.

They w i l l be c a l c u l a t e d according t o (1) and ( 2 ) .

Paragraph 6

Administration of t h e Fund

The fund w i l l be administered by a board of d i r e c t o r s , who w i l l

be e l e c t e d according t o t h e by-laws by t h e m e m b e r mining o p e r a t o r s o r

t h e i r delegates.

Paragraph 7

Voting Right of t h e Members

(1) Each mining o p e r a t o r has one v o t e p e r each m i l l i o n t o n s of

output per year.

(2) The v o t i n g r a t i o i n t h e assembly of members i s determined by

the amount of o u t p u t d u r i n g the previous y e a r . I f no o f f i c i a l determina-

t i o n of t h e amount h a s been made y e t , t h e v o t i n g r i g h t s are r e g u l a t e d by

t h e o f f i c i a l determination of o u t p u t during t h e y e a r b e f o r e t h a t .

(3) Simple m a j o r i t y of a t t e n d i n g members d e c i d e s .

Paragraph 8

Supervision of t h e Fund

(1) The s u p e r v i s i o n of t h e fund i s c o n t r o l l e d by t h e s t a t e mining

o f f i c e i n Bonn. A d e l e g a t e of t h e s t a t e mining o f f i c e i s e n t i t l e d t o

p a r t i c i p a t e i n a l l meetings of t h e board of d i r e c t o r s and a l l meetings

of members. The s t a t e mining o f f i c e can demand a meeting of members

w i t h i n a p e r i o d of two weeks.
 92

(2) T i m e , p l a c e and agenda of meetings a r e t o be made known t o t h e

s t a t e mining o f f i c e a t l e a s t one week i n advance. The s t a t e mining

o f f i c e must be informed of d e c i s i o n s . The s t a t e mining o f f i c e may r a i s e

o b j e c t i o n s a g a i n s t d e c i s i o n s which a r e unlawful o r do n o t conform t o t h e

by-laws, e s p e c i a l l y i f they concern t h e budget. I t must do s o w i t h i n two

weeks a f t e r being n o t i f i e d of t h e d e c i s i o n , which is thereby i n v a l i d a t e d .

I f t h e funds s t a n d s on i t s d e c i s i o n , t h e m i n i s t e r f o r ( t r a d e and) commerce

d e c i d e s i n c o n c e r t with h i s s p e c i a l m i n i s t e r s a f t e r h e a r i n g both t h e s t a t e

mining o f f i c e s and t h e fund w i t h i n a p e r i o d of f o u r more weeks.

(3) The s t a t e mining o f f i c e h a s t h e r i g h t a t a l l t i m e s t o i n s p e c t

t h e books and minutes of t h e fund and t o a u d i t t h e account.

Paragraph 9

Execution of t h e Law

The m i n i s t e r f o r commerce i n c o n c e r t w i t h t h e competent s p e c i a l

m i n i s t e r s d e c r e e s t h e ordinances n e c e s s a r y f o r t h e e x e c u t i o n of t h i s

law.

Paragraph 10

E f f e c t i v e Date

This law w i l l become e f f e c t i v e one day a f t e r i t s passage.

 93

BY-LAW AND FINANCING O F THE LAND PLANNING

COMMI SSI ON RHINELAND

March 27, 1952

The by-laws and c o n t r i b u t i o n system which w e r e decided on by

members of the land p l a n n i n g commission Rhineland on March 27, 1952,

and were approved by decree of t h e governor of t h e S t a t e of North Rhine

Westphalia t h a t same day are herewith made public:

By-Laws

I. Fundamentals

Paragraph 1

Function

(1) The l a n d p l a n n i n g commission Rhineland must perform w i t h i n i t s

p l a n n i n g a r e a a l l work n e c e s s a r y f o r t h e s t a t e planning. For that purpose

it w i l l g a t h e r i n f o r m a t i o n about t h e p r e s e n t c o n d i t i o n , e x p l o r e t h e funda-

mentals of planning, and develop t o g e t h e r w i t h a l l agencies of t h e planned

area a future-oriented, c r e a t i v e general plan. The commission w i l l e x e r t

a moderating i n f l u e n c e upon t h e most e x p e d i e n t use of t h e a r e a by s t r i v i n g

t o harmonize s m a l l and l a r g e a r e a p l a n s and t o mesh p r i v a t e and s t a t e

planning.

(2) The commission a d v i s e s t h e s t a t e l a n d planning a u t h o r i t y and

t h e members of the s t a t e planning commission.

Paragraph 2

Area

The a r e a of t h e l a n d planning commission Rhineland i n c l u d e s the

Rhineland p a r t of t h e state of North Rhine Westphalia with t h e exception

 94

of t h e area of t h e a s s o c i a t i o n of s e t t l e r s i n the R u h r d i s t r i c t .

Paragraph 3

Legal S t a t u s and Seat

The l a n d p l a n n i n g commission is a c c o r d i n g t o paragraph 2 / ( 3 ) o f the

Law about Land Planning of March 11, 1950 (GV. NW. p . 41) a c o r p o r a t i o n

of p u b l i c l a w and h a s i t s seat i n D k s e l d o r f .

Paragraph 4

Membership

(1) Members o f the commission are:

a. t h e c o u n t i e s and townships,

b. the d i s t r i c t governors,

c. s u b o r d i n a t e a u t h o r i t i e s d e s i g n a t e d by t h e f e d e r a l and s t a t e m i n i s t r i e s

i n accordance w i t h t h e s t a t e p l a n n i n g a u t h o r i t y .

(2) I n a d d i t i o n , on a v o l u n t a r y b a s i s , t h e f o l l o w i n g members may

be included:

a. t h e chambers of a g r i c u l t u r e , i n d u s t r y , and commerce; the chamber of

trades and c r a f t s ,

b. t h e unions and the employers' a s s o c i a t i o n s ,

c. t h e n o n - p r o f i t s e t t l e r s ' o r g a n i z a t i o n s and homesteads, t h e a s s o c i a t i o n s

f o r p u b l i c housing, t h e a g e n c i e s and a s s o c i a t i o n s of a g r i c u l t u r e and

f o r e s t r y , of i n d u s t r y and t r a f f i c , of mining, energy management and w a t e r

management ,

d. o r g a n i z a t i o n s t o p r e s e r v e n a t u r e and c u l t u r e ,

c. s c i e n t i f i c establishments.
 95

(3) The board of d i r e c t o r s d e c i d e s m a t t e r s of membership p e r t a i n i n g

t o (2). I f t h e d e c i s i o n i s n e g a t i v e , t h e c a n d i d a t e may address t h e meeting

of t h e whole membership.

(4) Membership under ( 2 ) can be c a n c e l l e d a t t h e end of t h e f i s c a l

y e a r (paragraph 1 7 ) . The c a n c e l l a t i o n i s t o be expressed a t l e a s t s i x

months i n advance by r e g i s t e r e d l e t t e r .

11. Organization

Paragraph 5

Organs

The organs of t h e Land p l a n n i n g commission a r e :

1. t h e assembly of members,

2. t h e board of d i r e c t o r s ,

3. t h e a d v i s o r y c o u n c i l , and

4. t h e land planner.

Paragraph 6

Meeting of Members

(1) The meeting of members i s f o r t h e purpose of keeping all members

c o n s t a n t l y aware of t h e problems of t h e land p l a n n i n g commission. The

meeting i s t o be informed about a l l a c t i v i t i e s of all organs of t h e l a n d

planning commission.

(2) The meeting of members v o t e s i n t o o f f i c e :

a. t h e members of t h e board of d i r e c t o r s and t h e i r s u b s t i t u t e s

(paragraph 8) ,

b. t h e chairman of t h e land p l a n n i n g commission and his s u b s t i t u t e

(paragraph 9) ,
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c. t h e members of t h e a d v i s o r y c o u n c i l and their s u b s t i t u t e s

(paragraph 101,

d. t h e l a n d p l a n n e r and h i s c o n s t a n t s u b s t i t u t e (paragraph 11).

The meeting makes the f o l l o w i n g d e c i s i o n s :

e. I t sets up t h e o r d e r of b u s i n e s s ;

f. it d e c r e e s and changes by-laws and c o n t r i b u t i o n s ;

g. it h a n d l e s o b j e c t i o n s according t o paragraph 4 ( 3 ) ;

h. i t handles r u l i n g s according t o paragraph 13;

i. it sets up a budget i n c l u d i n g t h e l i s t of s a l a r i e d p o s i t i o n s

(paragraph 1 7 ) ; and g i v e s

k. approval of b i l l s and t h e i r payments (paragraph 17).

(3) The meeting c o n s i s t s of the d e l e g a t e s of i t s members. Every

member sends one d e l e g a t e t o t h e meeting of members. The l a n d p l a n n e r

p a r t i c i p a t e s i n t h e meetings i n an a d v i s o r y c a p a c i t y .

(4) The chairman of t h e meeting i s t h e chairman of t h e l a n d

planning commission o r h i s s u b s t i t u t e .

(5) One r e g u l a r meeting t a k e s p l a c e each y e a r . The chairman can

c a l l an e x t r a o r d i n a r y meeting. H e must do so i f t h e board of d i r e c t o r s

r e q u e s t s it of i t s own account o r upon r e q u e s t of t h e l a n d p l a n n e r o r

i f a t l e a s t one q u a r t e r of t h e members demand it.

(6) The meeting must be c a l l e d i n w r i t i n g t w o weeks b e f o r e it w i l l

t a k e p l a c e , and t h e o r d e r of b u s i n e s s must be s t a t e d .

Paragraph 7

Voting and Voting R i g h t s

(1) Each township and county h a s one v o t e .

(2) The d i s t r i c t governors and t h e lower a u t h o r i t i e s , which are

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d e l e g a t e d by the m i n i s t r i e s of t h e f e d e r a l and s t a t e governments, are

e n t i t l e d t o t h e same number of v o t e s as t h e townships and c o u n t i e s (1).

(3) Each v o l u n t a r y m e m b e r a c c o r d i n g t o paragraph 4 (21, has one

v o t e i f he makes a y e a r l y c o n t r i b u t i o n of a t l e a s t 1200 DM. The volun-

t a r y members may have n o t more t h a n 49% o f t h e votes.

(4) The v o t i n g i s done by s i m p l e m a j o r i t y r u l e by t h e members

a t t e n d i n g the meeting.

(5) F o r d e c i s i o n s concerning t h e d r a f t i n g and changes of t h e by-

l a w s and c o n t r i b u t i o n s , a m a j o r i t y v o t e of t w o t h i r d s of the v o t i n g members

p r e s e n t is necessary. For t h e s e d e c i s i o n s , as w e l l as f o r d e c i s i o n s

concerning the budget (paragraph 17) and p o s i t i o n s , t h e r e must be a t

l e a s t a simple m a j o r i t y v o t e of t h e members as d e f i n e d by paragraph 4 ( l a )

and paragraph 4 ( l b and I C ) . For t h e complete membership, a two t h i r d s

m a j o r i t y v o t e is r e q u i r e d .

Paragraph 8

Board of D i r e c t o r s

(1) The board of d i r e c t o r s c o n t r o l s t h e management o f t h e l a n d

planning commission. I t decides by simple m a j o r i t y r u l e .

(2) The board of d i r e c t o r s c o n s i s t s of twelve members. They are

voted i n t o o f f i c e by t h e meeting of members f o r a term o f f o u r y e a r s .

They may be r e e l e c t e d . They remain i n o f f i c e u n t i l t h e f o l l o w i n g

election. For each m e m b e r a s u b s t i t u t e m e m b e r s h a l l be e l e c t e d who w i l l

t a k e o v e r the f u n c t i o n s of t h e member upon h i s r e s i g n a t i o n . The members

of the board of d i r e c t o r s r e t i r e from t h e i r p o s i t i o n i f t h e y lose the

. o f f i c e o r p o s i t i o n f o r which they w e r e e l e c t e d .
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(3) The board of d i r e c t o r s should c o n s i s t of one d e l e g a t e each of

a c i t y d i s t r i c t , a country d i s t r i c t , a d i s t r i c t o f f i c e of d i s t r i c t

township, a d i s t r i c t c i t y , i n a d d i t i o n t o one d e l e g a t e each of t h e a r e a

of a g r i c u l t u r e , mining, i n d u s t r y and unions. The s u b s t i t u t e s a r e t o

be s e l e c t e d from t h e same a r e a s .

(4) The land p l a n n e r p a r t i c i p a t e s i n t h e meetings of t h e board i n

an advisory c a p a c i t y .

Paragraph 9

The Chairman

The chairman and h i s s u b s t i t u t e w i l l be e l e c t e d upon s u g g e s t i o n

o f t h e board of d i r e c t o r s f o r a p e r i o d of f o u r y e a r s . They may be

reelected. They remain i n o f f i c e u n t i l t h e following e l e c t i o n . They

d i s c o n t i n u e t h e i r s e r v i c e i f they l o s e t h e o f f i c e o r p o s i t i o n f o r which

they were e l e c t e d .

Paragraph 10

Advisory Board

(1) A n a d v i s o r y board of e x p e r t s w i l l be formed t o s o l v e

s p e c i f i c p l a n n i n g problems and t o a d v i s e t h e members and t h e board

of d i r e c t o r s .

(2) The a d v i s o r y board s h a l l c o n s i s t of n o t more than 40 members

and t h e i r s u b s t i t u t e s . They are e l e c t e d by t h e g e n e r a l meeting of mem-

b e r s f o r a p e r i o d of f o u r y e a r s . The v o t e s are r e g u l a t e d according t o

paragraph 8 ( 2 ) .
(3) The chairman of t h e l a n d planning commission is a l s o t h e
.
chairman of t h e advisory board. H e c a l l s a meeting of t h e advisory

board once a year.

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(4) The l a n d p l a n n e r p a r t i c i p a t e s i n t h e meetings of t h e advisory

board i n an advisory c a p a c i t y .

(5) The advisory board t o g e t h e r with t h e l a n d p l a n n e r may form

subcommittees t o work o u t s p e c i f i c problems o r t o a d v i s e i n s p e c i f i c

fields. The l a n d p l a n n e r o r a person d e s i g n a t e d by him i s t h e head of

such subcommittees.

Paragraph 11

T-he Land Planner

(1) The l a n d p l a n n e r runs t h e c u r r e n t b u s i n e s s of t h e l a n d

planning commission and r e p r e s e n t s t h e commission i n and o u t of

court. H e i s e l e c t e d by t h e g e n e r a l meeting of members upon s u g g e s t i o n

of t h e board of d i r e c t o r s . The same procedure is used i n e l e c t i n g his

substitute.

(2) The e l e c t i o n of t h e l a n d p l a n n e r must be confirmed by the s t a t e

governor as a u t h o r i t y of s t a t e planning.

(3) The land p l a n n e r is t h e o f f i c i a l s u p e r i o r of a l l c i v i l s e r v a n t

o f f i c i a l s , employees, and l a b o r e r s of t h e l a n d planning commission. He

can give s p e c i f i c i n s t r u c t i o n s t o t h e personnel of t h e l a n d planning

commission (paragraph 1 3 ) .

(4) C o n t r a c t s must be signed by t h e chairman of the board of

d i r e c t o r s a s w e l l a s by t h e l a n d p l a n n e r . The d a i l y business of adminis-

t r a t i o n which i s n o t very important f i n a n c i a l l y may be handled by t h e

land planner alone.

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Paragraph 1 2

Legal S t a t u s o f Employees

The l e g a l s t a t u s of o f f i c i a l s , employees, and l a b o r e r s i s r e g u l a t e d

according t o t h e r u l e s t h a t h o l d f o r o f f i c i a l s , employees, and l a b o r e r s

of t h e townships i n t h e S t a t e of North Rhine Westphalia.

Paragraph 1 3

Delegated Employees

I n s t e a d of t h e r e g u l a t i o n according t o paragraph 11 (1) and paragraph

1 2 , t h e meeting may decide, upon s u g g e s t i o n of t h e board of d i r e c t o r s ,

t o have t h e work o f the l a n d p l a n n e r and h i s s t a f f performed by o f f i c i a l s ,

employees, and l a b o r e r s of t h e s t a t e o r a n o t h e r a r e a c o r p o r a t i o n , i f such

a s t a f f i s made a v a i l a b l e by t h e s t a t e o r a n o t h e r a r e a c o r p o r a t i o n .

Paragraph 1 4

D i s t r i c t Planning O f f i c e s and D i s t r i c t P l a n n e r

(1) The land planning commission s h a l l e s t a b l i s h d i s t r i c t planning

o f f i c e s a t t h e s e a t of t h e d i s t r i c t governments. These o f f i c e s s h a l l

address themselves t o d i s t r i c t problems of l a n d planning.

(2) The d i s t r i c t planning o f f i c e s a d v i s e t h e d i s t r i c t governor,

t h e c o u n t i e s , and t h e townships i n m a t t e r s p e r t a i n i n g t o t h e i r a r e a .

(3) The d i s t r i c t p l a n n e r i s under t h e a u t h o r i t y of t h e d i s t r i c t

governor, a c c o r d i n g t o r e g u l a t i o n s of t h e l a n d p l a n n i n g l a w of 2 8 , June

1950 (GV. NW. p. 1 4 1 ) , a r t i c l e I (1) w h i l e performing h i s d u t i e s .

(4) The head of t h e d i s t r i c t p l a n n i n g o f f i c e i s t h e d i s t r i c t

planner. The d i s t r i c t p l a n n e r i s appointed by t h e chairman of t h e

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l a n d planning commission upon s u g g e s t i o n of t h e board of d i r e c t o r s

a f t e r h e a r i n g t h e r e s p e c t i v e d i s t r i c t governor. The same procedure

i s used t o a p p o i n t h i s s u b s t i t u t e . A l t e r n a t e l y , a s o l u t i o n according

t o r e g u l a t i o n s i n paragraph 1 3 may be found. The appointment must be

approved by t h e s t a t e governor as head of t h e l a n d p l a n n i n g a u t h o r i t y .

(5) The d i s t r i c t p l a n n e r carries o u t t h e d a i l y b u s i n e s s of the

d i s t r i c t planning o f f i c e . Within his budget he may temporarily employ

h e l p on his own.

Paragraph 15

Advisory Board of D i s t r i c t Planning O f f i c e s

(1) I n t h e d i s t r i c t planning o f f i c e , an advisory board i s c r e a t e d

t o assist i n s o l v i n g s p e c i f i c planning problems.

(2) The a d v i s o r y board c o n s i s t s of up t o 20 members and t h e i r

substitutes. They are e l e c t e d by t h e board of d i r e c t o r s upon suggestion

of t h e d i s t r i c t governor f o r a four-year term. The e l e c t i o n s are regu-

l a t e d according t o paragraph 8 ( 2 ) .

(3) The d i s t r i c t p l a n n e r a t t e n d s meetings of t h e advisory board

i n an a d v i s o r y c a p a c i t y .

(4) The a d v i s o r y board may form subcommittees (paragraph 1 0 , (5) 1 .

The head of t h e subcommittees is t h e d i s t r i c t planner.

Paragraph 16

Honorary P a r t i c i p a t i o n

P a r t i c i p a t i o n i n t h e membership of t h e l a n d planning commission,

i n t h e board o f d i r e c t o r s and a l l a d v i s o r y boards i s without remuneration.

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111. Financing

Paragraph 17

Budget and Accounting

(1) The f i s c a l y e a r of t h e l a n d planning commission corresponds t o

t h e f i s c a l y e a r of the s t a t e .

(2) For each f i s c a l y e a r the l a n d p l a n n e r must s e t up a budget and

p r e s e n t i t t o t h e board of d i r e c t o r s f o r d i s c u s s i o n . The board of d i r e c t o r s

p r e s e n t s t h e budget t o t h e members f o r d e c i s i o n s . The budget must c o n t a i n

a l l f o r e s e e a b l e expenses. I t must balance.

(3) I n a d d i t i o n t o approval of t h e budget, d e c i s i o n s s h a l l be made

concerning t h e f e e s of c o u n t i e s and townships.

(4) The budget w i l l be set up according t o r e g u l a t i o n s governing

s t a t e budgets.

(5) A t t h e end of t h e f i s c a l y e a r the board of d i r e c t o r s p r e s e n t s

t h e account, checked by an o f f i c i a l accountant, t o t h e members. The

members approve the account.

Paragraph 18

Covering of Expenses

(1) The expenses of the l a n d planning commission a r e covered by:

a. subsidy of t h e S t a t e of Northrhine-Westphalia,

b. f e e s of members,

c. o t h e r income.

(2) The f e e s of members a r e l e v i e d according t o t h e r e g u l a t i o n s

of f e e s . The r e g u l a t i o n of f e e s i s p a r t of t h e s e by-laws.
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IV. S t a t e Supervision

Paragraph 19

The l a n d planning commission i s s u p e r v i s e d by t h e s t a t e governor

as t h e a u t h o r i t y of l a n d planning, according t o paragraph 2 of t h e land

planning l a w of March 11, 1950 (GV. NW. p. 4 1 ) .

V. F i n a l Statement

Paragraph 20

These by-laws w i l l replace the by-laws of October 1, 1945, i n the

d r a f t of November 1946 and become e f f e c t i v e on March 27, 1952.

Regulation of Fees

Paragraph 1

The f e e s of t h e c o u n t i e s and townships a r e c a l c u l a t e d i n t h e

following manner: F i r s t t h e s t a t e subsidy, t h e voluntary f e e s of

members, and a l l o t h e r expected income a r e compared w i t h t h e expendi-

tures. The d e f i c i t i s then c a l c u l a t e d . Half of t h i s d e f i c i t should

be a s s e s s e d , according t o r e g u l a t i o n s covering p r o v i n c i a l t a x assessments,

t o the r e s p e c t i v e c i t y and county government a g e n c i e s . From t h e assessment

the f e e s are c a l c u l a t e d . The o t h e r h a l f of t h i s d e f i c i t w i l l be c a r r i e d

i n t h e c a s e of t h e l a n d planning commission by the s t a t e i n s t e a d of t h e

p r o v i n c i a l government.

Paragraph 2

The f e e s of v o l u n t a r y members w i l l be agreed upon a t t h e t i m e of

t h e i r admission.
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Paragraph 3

The l a n d p l a n n e r informs t h e members of t h e fees by w r i t t e n n o t e .

The n o t e i s t o b e served.

Paragraph 4

The f e e s are t o be p a i d i n f o u r i n s t a l l m e n t s a t t h e beginning

o f each f i s c a l q u a r t e r t o t h e r e s p e c t i v e budget of t h e l a n d p l a n n i n g

commission. U n t i l f i n a l d e c i s i o n s are made concerning amount of f e e s

of c i t y and county a g e n c i e s , t h e q u a r t e r l y i n s t a l l m e n t s are t o be p a i d

according t o the p r e v i o u s y e a r ' s assessment of f e e s .

Paragraph 5

A t t h e beginning of t h e f i s c a l y e a r t h e l a n d p l a n n e r may s e r v e t h e

m e m b e r s w i t h a p r e l i m i n a r y estimate of t h e i r annual f e e .

Paragraph 6

The p r e l i m i n a r y f e e i s t o be p a i d . The board of d i r e c t o r s w i l l

consider objections. The o b j e c t i o n does n o t postpone t h e n e c e s s i t y

of payment.

Paragraph 7

Members who pay a f t e r t h e fees are due must pay i n t e r e s t f o r t h e

t i m e of d e l a y i n t h e amount of the c u r r e n t r a t e of d i s c o u n t of t h e

Landes-Zentralbank Diisseldorf o r must compensate f o r t h e damage r e s u l t i n g

from t h e d e l a y . I n t e r e s t payment o r amount of damage must be s t a t e d i n

a w r i t t e n n o t e t o t h e member and s e r v e d .
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Paragraph 8

The board of d i r e c t o r s may i n e x c e p t i o n a l cases r e l i e v e a member

f r o m payment of f e e s , i n t e r e s t , o r damage payment, o r it may g r a n t a

d e l a y of payment of f e e s due, o r it may reduce t h e f e e s .

MBI NW 1952 p. 773