Tag: EPA

Richard G. Lugar: Nixon’s Favorite Mayor

“A warm Hoosier welcome on a rather cold day.”

That’s how President Richard Nixon described his reception in Indianapolis on February 5th, 1970. Awaiting his arrival on the tarmac, Governor Edgar Whitcomb and Mayor Richard Lugar received the President and his federal entourage. This was the first presidential visit conducted by Nixon since his inauguration in 1969 and Indianapolis was chosen as their destination due to the new Republican leadership under Mayor Lugar. After exchanging pleasantries and traveling to City Hall, Nixon and Lugar spoke to the crowd of approximately 10,000 Hoosiers before convening for their scheduled conference on urban affairs. During the conference, President Nixon convened with nine Indiana mayors to discuss problems faced by city leadership and the federal government’s role. At 4:30 PM, President Nixon departed Indianapolis to visit Chicago. While brief, President Nixon’s visit to Indianapolis greatly influenced both Lugar’s political future and the city of Indianapolis as a whole.

President Nixon and Mayor Lugar greeting one another, 1970, courtesy of the Institute for Civic Leadership and Digital Mayoral Archives 

After Nixon’s visit, Richard Lugar would experience a meteoric rise in the political sphere, easily winning his mayoral re-election in 1972 and earning a U.S. Senate seat in 1976. Lugar served one of Indiana’s senators for 32 years, garnering a reputation as a foreign policy expert and renowned statesman. He is best known for co-authoring the acclaimed Nunn-Lugar Cooperative Threat Reduction program, which led to the dismantling of thousands of Cold-War era weapons in previous USSR territory and a Nobel Peace Prize Nomination. In 2013, President Barack Obama named Lugar as a Presidential Medal of Freedom recipient stating:

 “His legacy, though, is the thousands of missiles and bombers, and warheads that no longer threaten us because of his extraordinary work. And our nation and our world are safer because of this statesman.” – President Barack Obama, 2013

In examining Lugar’s towering legacy, one must ask, how does a mayor of a landlocked city in the Midwest become the leading statesman in foreign policy for over 30 years?

The answer to that question can be traced back to February 5th, 1970, and a warm handshake on a rather cold day. Lugar transformed an otherwise short and symbolic visit with Nixon into a key political moment, forging an unprecedented relationship between a city mayor and the sitting president. In a Washington Post article, Peter Braestrup aptly dubbed the young Lugar as “Nixon’s Favorite Mayor.” The name stuck, and Lugar leveraged his new title to enter national politics and foreign affairs. While Lugar’s association as “Nixon’s Favorite Mayor” was problematic immediately after the Watergate scandal, his affiliation with the President was overall more beneficial than detrimental to his political career. Ultimately Nixon’s relationship with Lugar was the catalyst for Lugar’s remarkable career in foreign affairs, elevating both Lugar and Indianapolis to national and global prominence.

Nixon’s presidency is remembered, for better or worse, as one of the most consequential administrations in American history. Globally, Nixon found success in foreign affairs, revolutionizing the Cold War by pursuing rapprochement with China. Domestically, Nixon championed New Federalism which facilitated the transfer of power from the federal government to the state level via federal block grants. Conservatives believed this policy would curb the bloated bureaucratic system. However, Democrats believed that New Federalism was an underhanded attempt to dismantle President Lyndon B. Johnson’s Great Society. Frustrated by a resistant Congress, Nixon sought to prove that his philosophy of decentralization worked. In 1970, Nixon found a prime example of New Federalism in Indianapolis, lead by its newly minted Republican mayor, Richard G. Lugar.

Before Lugar’s election, Indianapolis Democrats had enjoyed a sixteen-year long monopoly on the mayoral office. However, Lugar and his campaign manager, Keith Bulen, capitalized on a rift forming within the Democratic party and, running a tight grassroots campaign, won the 1967 mayoral election. As mayor, Lugar successfully implemented Unigov, a controversial piece of legislation that folded several counties into the city of Indianapolis, increasing the city’s population by 300,000 citizens overnight. Notably, the demographic incorporated into Marion County was mainly white, conservative, suburbanites whose vote solidified the Republican party’s dominance in Indianapolis. Unigov also established Indianapolis as a leader in urban policy, successful city consolidation, and effective “home rule,” a not-so-subtle nod to Nixonian New Federalism.

A caricature of Mayor Lugar ascending into the sky on a rocket titled “Uni-Gov, ” 1971, courtesy of the Institute for Civic Leadership and Digital Mayoral Archives

By 1970, President Nixon was embroiled in the Vietnam War and public criticism of his inability to withdraw, a promise he had made on the campaign trail, mounted every day. As the war dragged on, Nixon became increasingly sequestered in the White House, failing to make a presidential visit outside of Washington D.C. for the entirety of 1969. A deeply insecure man, Nixon abhorred the idea of a presidential visit being marred by coverage of anti-war protestors and personally embarrassing him. His administration urged him to leave D.C. and eventually identified Indianapolis as a city where he would receive an enthusiastic welcome and, in turn, positive media coverage. Better yet, Mayor Lugar’s Unigov legislation offered a thriving example of New Federalism and decentralized government. The presidential visit was confirmed in January of 1970 and Mayor Lugar began preparing the local Republican party to receive the president.

The presidential visit was a rousing success with both the media and public. The Indiana GOP had extensively planned this visit, inviting positive coverage of the event and a gathering a crowd of over 1,000 people for Nixon and Lugar’s speeches alone. President Nixon was reportedly delighted by the large reception and in good humor traveling to the conference. The Urban Affairs Conference was more symbolic than practical, cementing Nixon’s commitment to New Federalist Policy. This commitment would later reach Indianapolis by way of generous block grants and federal funding. The visit drew national attention to Lugar’s successes as mayor and the media began connecting Lugar with Nixon in their headlines, eventually bestowing upon Lugar the title of “Nixon’s Favorite Mayor.”

Lugar introduces President Nixon with First Lady Pat Nixon and Governor Edgar Whitcomb prominently featured, 1970, courtesy of Indiana University Bloomington: The Richard G. Lugar Senatorial Papers

More importantly, Nixon’s visit to Indianapolis unintentionally precipitated Senator Lugar’s career as a diplomat, statesman, and foreign affairs expert. In WYFI’s documentary on Lugar, the senator reminisces on how he was invited to his first NATO conference by President Nixon. After delivering their speeches in front of City Hall, Lugar and Nixon were heading towards the conference on urban affairs and conversing during the elevator ride.

Upon passing the 25th floor, Nixon pivoted towards Lugar and said:

“Dick, I want you to go with Moynihan…to Brussels to represent the United States at a NATO conference on cities.” – President Nixon as remembered by Richard Lugar

Lugar accepted the President’s invitation. Seemingly a reward for the successful presidential visit, Lugar’s attendance Brussels NATO conference precipitated his transformation from a local, Midwestern politician to a U.S. Senator and global tour de force. During the conference, Lugar attended several diplomatic meetings and, on the second day, proposed that Indianapolis host another NATO conference in May of 1971. Talking points for this Hoosier hosted conference included urban growth, with Indianapolis being the case study, municipal affairs, and urban problems. The proposal was accepted, and Lugar was able to successfully blend his previous experience with urban affairs with his new interests in foreign policy. Both NATO conferences provided the mayor with vital connections and foreign policy experience that Lugar later leveraged to maneuver into the U.S. Senate’s Foreign Affairs Committee.

A year after hosting the Indianapolis NATO conference, Mayor Lugar was invited to speak at the 1972 RNC where he was introduced by Governor Ronald Reagan. Reagan, in his charismatic oratory style, lauded Lugar as:

“A respected spokesman for and practitioner of the very best in workable new approaches to the urban challenge… he has represented the President not only across this country but also within the NATO Community.”- President Ronald Reagan, 1972

Lugar’s rise to national prominence experienced a major setback on August 8th, 1974, when Nixon, unable to escape the Watergate Scandal, became the first and only sitting president to resign. Suddenly the title “Nixon’s Favorite Mayor,” was a curse rather than a blessing. Despite efforts to separate himself from the disgraced president, Lugar lost the 1974 Senatorial election to Democratic incumbent Birch Bayh. However, Lugar quickly bounced back in 1976’s election and began his federal career as Indiana’s longest-serving state senator.

Ultimately, the lasting impact of Lugar’s relationship with Nixon as his “favorite mayor” was Lugar’s rapid rise in politics and critical access to foreign policy early in his career. Without Nixon’s 1972 presidential visit, Lugar would not have been able to attend the NATO conference in Brussels, host a similar conference in Indianapolis, and most likely would not have been invited to speak at the 1972 RNC. These cumulative events were significantly more impactful than Lugar’s singular 1974 election loss. Without Nixon’s mentorship, Lugar’s senatorial career would have been vastly different, and his legislation may have been limited to areas more in line with the expertise of a midwestern politician such as agriculture. Instead, Lugar was able to capitalize on the diplomatic opportunities Nixon presented him and pursue an illustrious career in foreign affairs. After losing the primary election in 2012, Lugar would continue to make speaking appearances until his passing on April 28th, 2019. The Lugar Center preserves Senator Lugar’s preeminent legacy by continuing his policies regarding nuclear weapon nonproliferation, global food security, and bipartisan governance.

Richard Nixon Shaking Hands with Mayor Lugar, unknown date, courtesy of the Institute for Civic Leadership and Digital Mayoral Archives

In January of 1994, during the 25th anniversary of Nixon’s presidential inauguration, Senator Lugar and President Nixon’s paths crossed one final time. It was another chilly day in Washington D.C., and the weather resembled that of the two statesman’s first encounter nearly 25 years prior. In those two and a half decades much had changed: the Cold War had ended, Bill Clinton was President, and the Republican Party was undergoing a major political transformation and becoming increasingly conservative. This stood in stark contrast to Nixon’s promotion of desegregation and the founding of the EPA. It was during this time that the political topography started shifting under Lugar’s feet and Lugar, once known as a solid conservative, began being known as a bipartisan negotiator or even a moderate. This new reputation would later be weaponized against him in the 2012 primary election. Regardless of the political present and future, Lugar and Nixon were gathered to recount presidential history. Lugar proclaimed to the gathered crowd, “Our prayers today are for the continuing strength and activity of President Richard Nixon,” whom he then referred to as his “foreign policy teacher and counselor.” After the celebration, Nixon, who was now in his 80’s, privately pulled Lugar aside and confided in him saying:

“You know, you really were my favorite mayor.”

The Politics of Pollution in “The Region”

The Times (Munster), August 13, 1970, accessed Newspapers.com.

* See Part I to learn about the origins of Federated Metals’ Indiana plant and community protest to its pollutants.

Carl Weigand, acting chief of air pollution control, reported in 1969 that Federated Metals’s Hammond-Whiting smelting plant “has a hell of [a] stink problem” (Munster Times). He worked untiringly to combat air pollution generated by “The Region‘s” industries. Weigand’s description of his professional obstacles mirrored the conflicting financial and environmental interests enmeshed in the plant: “Sometimes all a company has to do is call up a councilman or city hall to mention, ‘we could move this operation'” and pollution policies would go unenforced. “But,” Weigand countered, “‘I’m a stubborn German.'”

That year, the Munster Times noted that the Calumet Region was 11th in air pollution in the U.S. When including the Chicago area, it was the second or third highest. Nationally, Americans turned their attention to the impact of industry on the environment, especially following the Santa Barbara oil spill. In 1970, Senator Gaylord Nelson created the first Earth Day, and throughout Indiana Hoosiers acted to raise awareness about the imminent pollution crisis. In addition to general clean up campaigns, panel discussions, and seminars, students built monuments made of trash and participated in marches. The constituent support for Earth Day encouraged Congress to enact a swell of landmark environmental legislation, including the creation of the Environmental Protection Agency in December 1970, the Clean Air Act amendments of 1970, and the Clean Water Act in 1972.

Christy Miller, a student at Northwestern High School in Kokomo, stands among trash picked up around the school and asks other students to sign a petition against pollution, Kokomo Tribune, April 23, 1970, accessed newspapers.com.

In this framework, Federated Metals found itself on the periphery of a heated public debate about the fate of Lake George in the late 1970s. The Times reported in 1979 that silt containing toxic metals, like arsenic and mercury, was found at the bottom of the “‘decaying lake,'” potentially making fish dangerous to eat. This complicated Calumet College‘s proposal to deepen the lake, and resulted in a “turbulent hearing involving debates over private vs. public rights, hazardous waste and legislative intent.” The college owned the title to the lake, except for the section belonging to Federated Metals. College president Rev. James F. McCabe petitioned to drain the lake and remove sand, which would then be sold, generating approximately $1.5 million for the struggling school.

Rev. McCabe contended “If you force us to preserve a decaying lake, it will be an infringement on the rights of private ownership.” But the U.S. Corps of Engineers advised against dredging because it could stir up pollutants. The Indiana Department of Natural Resources, however, thought the petition should be approved, with conditions, because “The proposed project would increase the recreational potential and desirability of the lake, and would preserve the existing wildlife habitat.”

In 1981, “emotional tension” arose when senators debated a bill allowing Calumet College to sandmine Lake George, despite the city having an ordinance against sand-mining. The Times reported on a skirmish on the Senate floor between bill sponsor Senator Ralph Potesta (R) and opponent Senator Frank Mrvan (D). The legislators argued over ownership of the lake, control of which would be taken from the DNR with passage of the bill. Senator Mrvan opposed this, as well as the potential for property damage caused by sand-mining. He was accompanied by women from the Robertsdale neighborhood, who protested “the most lobbyed [sic] bill to be considered this session” in the Senate chambers. State policemen manned the chambers after one woman reportedly threatened to shoot Senator Potesta if the bill passed. When it did, the Times noted “tiny pieces of a printed copy of the bill flurried to the floor of the Senate from where the women were seated. One began to cry.” The project was expected to generate $38 million ($2-$3 million allocated to the college) and some of the sand would be used to fill the Cline Avenue extension. The debate about dredging the lake was for naught. Calumet College scrapped the idea in 1989, stating “Calumet College has no interest—long-term—in being in the lake business, the park business, the sand business, the real estate business or any related business” (Times).

Senator Mrvan had earlier opposed Federated Metal’s 1977 expansion, which involved building a “sludge treatment plant designed to extract nickel compounds used for nickel-plating steel.” He exclaimed, in response to the City Council’s approval of municipal-rate bonding for the plant, “‘I don’t believe this. Here are nine councilmen just coming in and we’re expected to pass this thing in one night when we’ve never seen it before.'” Mrvan also took issue with the unannounced caucuses that took place prior to the vote and influenced councilmen.

Although it had closed its Indiana plant in 1983, Federated Metals found itself in hot water in 1985, when it had to pay civil penalties to the Indiana Environmental Management Special Fund for permit violations. The Times stated that the company “failed to provide groundwater monitoring equipment on its property where hazardous waste was treated and stored.” In December of that year, HBR Partners, Inc. purchased the former plant.

“Appeal Goes Out to Study Dumps, The Times (Munster), February 21, 1988, 1, accessed Newspapers.com.

Federated’s troubles deepened in 1986, when Councilman Gerald Bobos requested an investigation into possible contamination of Lake George by dump sites owned by Federated and the former Amoco facility. Preliminary studies conducted in 1984 indicated that “‘at one time there were 50,000 cubic yards of persistent toxic substances—picking liquors, degreasers and fine heavy metal powders—on the site that could be filtered into the lake'” (Times, March 1986). The study also noted that a child sustained third-degree burns while playing at the dump in 1978.

“Innuendos” and “allegations” is how Councilman Edward Repay described Bobos’s presentation of the surveys, which he used to convince the council of the need for an official investigation. Repay, who sponsored the lake dredging, contended that “we’ve got studies from last year from the Robertsdale Foundation that show the sand is clean. I’ll go along with those studies.” Ultimately, Repay voted to investigate the dump sites, but not before accusing opponents of the dredging as guilty of “‘rotten, no-good, uncitizenlike behavior'” for presenting the studies.

Feeling the need to explain himself, Repay wrote to the Munster Times that his anger towards a Hammond councilman, presumably Bobos, was deserved. Repay leveled that his ire was not because the councilman and United Citizens Association (UCA) brought up the alleged toxic state of the Federated site, but “that they waited to use it as a ‘trump card’ against possible improvements to George Lake.” (Bobos had earlier mentioned that he requested the 1984 studies months prior, but the state board’s delay meant he was unable to use them in the decision to issue a dredging permit). Repay maintained “This is ‘one-upsmanship,’ not statesmanship or an act of a responsible civic organization.” Repay agreed that action should have been taken when the child was exposed in 1978, but the “inaction of a councilman and the leaders of the UCA is reprehensible and deserving of angry criticism.”

The Times (Munster), April 30, 1991, 12, accessed Newspapers.com.

Ultimately, the EPA  planned to investigate, which site inspection official Harry Atkinson considered crucial because there were over 800 alleged dump sites in the state, but Lake County has “‘tons’ of such alleged sites.” The Times reported that federal inspectors tried to examine the former site of Federated Metals in 1985, but the property owners denied access.

In 1990, the U.S. Justice Department sued Federated Metals, Inland Steel, and Bethlehem Steel, jewels in The Region’s industrial crown. According to the Logansport Pharos-Tribune, the Justice Department sued for violation of pollution laws, which threatened Lake Michigan by “‘creating fish too contaminated to eat, forcing frequent beach closings, harming wildlife living along the shore, and depositing toxins in lake bottom sediment.'” The Northwest Indiana Times reported that at the time Indiana was one of seven U.S. states without air pollution control laws and relied on federal regulations that only limited small amount of emissions. Increased enforcement of pollution laws through heavy fines, a Justice Department official contended, “would teach industrial polluters that befouling the air and waterways can cost more than spending to control hazardous wastes.” The director of the Grand Cal Task Force, a citizens environmental group, approved of the “aggressive plan,” stating “In the past, smoke has meant jobs. . . . People were afraid to put pressure on the companies. Now there aren’t as many jobs and pollution is just as bad.”

The Tribune (Seymour), October 17, 1990, accessed Newspapers.com.

The following year, Federated Metals and the Indiana Department of Environmental Management (IDEM) came to an agreement to make the site safer. The Munster Times reported that within a year the smelting company would place a “sophisticated clay cap” over nineteen acres of contaminated slag in Lake George and install monitoring wells. Federated’s residual heavy metals had been linked with “mental retardation in children and high blood pressure in adults.” Preventing these health effects, an IDEM official said, “has been a thorn in our side for quite a long period of time.”

The Times credited citizens living in the Robertsdale neighborhood for the remediation. The paper stated that the group had worked for years to “get the site cleaned up and fenced off from unsuspecting children who enjoyed riding their bikes on the lead, zinc and copper dust piles because they were soft to land in.” Kids also scavenged for metal to sell at the former site. By 1991, Federated Metals, a subsidiary of Asarco Inc., installed a security guard and fence to prevent this from reoccurring.

Federated Metals
The Times (Munster), November 11, 2003, 9, accessed Newspapers.com.

But hazards posed by the former Federated Metals site endured into 21st century. The Times reported in 2003 that the “hazardous waste dump” had “never been closed or capped, allowing the release of toxins into the air and the contamination of water that runs into the lake [George].” That year, environmental consulting and remediation company ENACT began a “long-awaited cleanup” of the former Federated site.

To David Dabertin, a now retired EPA official and Hammond resident, history repeated itself in 2017. IDEM renewed Whiting Metals’s permit (which operates at the former Federated site), despite the EPA investigating off-site soil contamination in residential areas. This area included the St. Adalbert Catholic Church, which complained in 1939 that Federated’s noxious fumes kept students home. According to the Northwest Indiana Times, IDEM renewed the permit without a public hearing or meeting. Dabertin, one of the local children that had ridden his bike through the piles of metal dust, railed that issuing the permit in

an area where lead may be an issue without obtaining the test results is foolish and bordering on the negligent . . . The refusal to hold a public hearing is plain cowardice. And IDEM’s attempt to address my concerns about the prior ownership of the facility by relying on the unintelligible correspondence of its prior director is so nonresponsive it is insulting.

In April 2018, Dabertin introduced himself to Governor Eric Holcomb near the former Federated site and calmly informed him, “You are telling these people there is lead in their backyard, but [the state environmental agency] just permitted that facility to produce lead . . . That’s a disconnect.” Former U.S. EPA Administrator Scott Pruitt quietly accompanied Governor Holcomb on his visit to the EPA Superfund site and the following day authorized $1.7 million to remove contaminated soil. According to the Northwest Indiana Times, soil sampling detected the presence of lead above the EPA’s designated level. Removal of contaminated soil was slated to start the following week, beginning with properties inhabited by “sensitive populations,” such as pregnant women and children under the age of seven. But remediation costs at $50,000 per property, and the bankruptcy of Federated Metals, left no “responsible party” to replace the homeowner’s soil. It remains to be seen who will bear the financial burden of restoring the yards.

Will these efforts satisfy the community’s concerns about Federated Metal’s impact on their health? Or will they fall short, like Federated’s attempt to quell citizen protest in 1939 by replacing a problematic smokestack? That history is yet to be written.