DR.WALLACE W. HACAN Director Kentucky Geological Survey (Ret.) Observations on USGS-State Cooperative Mapping

HE DICTIONARY defines the word cooper- selective based on immediate needs of our T ate to mean: to work together willingly country. A state may attract the uscs to map for a common purpose. Thus, when The in it, or accelerate mapping in progress, by United States Geological Survey and a state entrance into a cooperative program. This agency enter into a cooperative agreement, also reduces the cost to the federal govern- they have definite objectives which involve ment, and produces a base map sooner, and both state and federal agencies. The signed consequently enhances economic develop- agreements are quite simple and indicate ment in the State. the nature of the funding, who performs the Fourteen states now have complete 7.5 operations, who owns the original materials, minute topographic map coverage on a the mutual considerations, and the publica- 1:24,000 scale, most of which was done in tion of the results. cooperative programs. Last year in FY 1978, There are several types of cooperative 38 states and Puerto Rico contributed $3.5 programs: million toward the National Mapping Pro- The uses furnishes the personnel, super- gram,- .- primarily for new 7.5 minute topo- vises personnel and operations, in field graphic mapping. Some states' cooperative and ofice, reviews, approves, does cartog- mapping agreements included: raphy, and publishes. Plans and priorities are formulated mutually, and funds are High-altitude aerial photography, photo- matched. inspection, and photorevision of published 7.5 minute maps in the states of Indiana, This is the same, except by agreement the state furnishes some of the personnel and Kansas, Pennsylvania, Ohio, and Virginia. pays them from state funds. State funds a Standard revision of published 7.5 minute and services are matched by the uscs. maps in the state of Kentucky. The uscs has a mission in a given state Revision and series conversion in the with which the state is in agreement, so the states of Louisiana and Wyoming. uSGs grants money to it to perform supervi- Preparation of 7.5 minute orthophotoquads sion, operations, and cartography with in the states of Massachusetts and North state personnel. Close control is exerted by Carolina. both parties. Periodic progress reports are Preparation of county topographic maps for required, as are maintenance of given the states of Colorado, Connecticut, Ken- standards. tucky, and Pennsylvania. Pilot projects to generate and use digital There are cooperative agreements in sev- cartographic data in the states of Kansas eral types of mapping, for example, topo- and Texas. graphic, areal geologic, aeromagnetic, grav- Preparation of 1:100,000 scale topo- ity, seismic, radiometric, orthophotographic; graphictbathymetric maps in the state water, coal, and mineral resources, slope of Georgia. maps, engineering geologic, and geologic In the past, uscs-state cooperative map- hazards. ping agreements generally meant matching The first cooperative agreement in topo- dollars or 50 percent each party. Today they graphic mapping was entered into in 1885 by are beginning to include other types of state the uscs with Massachusetts. Since then all assistance such as utilizing state facilities 50 states, the District of Columbia, Puerto and capacity to compile new map manu- Rico, and the Virgin Islands have contrib- scripts and map finishing; revising and up- uted over $95 million to cooperative topo- dating older ~ublishedmaps; researching graphic mapping programs with the uscs and data gathering to revise and update map through FY 1978. content; and similar activities. One of the uscs missions is to map the to- Today's discussion will briefly cover two pography of all 50 states, and since it cannot cooperative mapping programs in which map all at the same time, it is necessarily Kentucky has participated with the uscs.

PHOTOGRAMMETRICENGINEERING AND REMOTE SENSING, Vol. 45, No. 12, December 1979, pp. 1617-1620. PHOTOGRAMMETRIC ENGINEERING & REMOTE SENSING, 1979

Cooperative topographic mapping started in Kentucky to check the quadrangles for cul- Kentucky in 1903 and continued until 1929, tural and topographic changes. He and the and from then until 1948 there was no state geologist would meet annually with cooperative mapping in Kentucky. In 1947, representatives of the Kentucky Depart- the Kentucky Chamber of Commerce ap- ments of Highways and Commerce, look pointed a sub-committee of their Natural Re- over the changes, and select quadrangles for sources Committee to investigate the possi- revision, assign priorities, and send the rec- bility of a statewide topographic mapping ommendations to the Atlantic Region office program in cooperation with us~s.It con- for implementation. sisted of a cross-section of representatives Robert Lyddan, then Chief of the uscs from state and local governments, mineral Topographic Division, recommended to the industries, oil and gas industry, professional states in 1976 that, in order to incorporate engineers, agriculturalists, and foresters. As statewide requirements for 7.5 minute quad- a result of their conclusions and support, rangle and other map products into the prep- Governor Clements made it possible to enter aration of the annual national mapping plan, into a five-year program on a matching fund each should establish a State Mapping Advi- basis to map the 767 7.5 minute quadrangles sory Committee. The state requirements on a scale of 1:24,000. State funds came from then submitted annually by each committee the Kentucky Department of Highways and would receive equal consideration with from Legislature appropriations. The Ken- those of a federal agency that uscs receives tucky Agricultural and Industrial Develop- through the annual OMB A-16 procedure. ment Board at Frankfort, Kentucky provided This would not guarantee that all of a state's the necessary. coordination, administration, requirements will materialize in the fol- and technical direction through Phil M. lowing year's program, but it will help in- Miles to formulate concrete plans with the sure that the topographic program is geared uscs for a complete five-year mapping pro- toward meeting the greatest needs. Ken- gram. tucky has essentially implemented such a The first step to devise a plan of action was procedure through the KGS,although it has to review the status of mapping in Kentucky. not formalized it. Our present program is About 35 percent of the State's 40,395 square only adequate to revise urban areas about miles had never been mapped topograph- once every five years, and other quadrangles ically. About 20 percent of the area of the about once every 20 to 30 years. I believe the state was covered by topographic maps made procedure recommended by Robert Lyddan from 1882 to 1910, many of which were at a would take care of many of the cooperative scale of 1:125,000. About 30 percent of the problems which arise in the course of a pro- state was covered by 1:62,500 scale maps gram, and would place the emphasis on the made from 1910 to 1929. About 55 percent of areas of greatest need in the United States. the state required remapping, so it was de- In the 1960's the OMB requested the uscs cided to map the entire state on a scale of to cut the cost of preparation of topographic 1:24,000 on 7.5 minute quadrangles. map revision by use of photorevision and Cost and time estimates were prepared. overprint of cultural changes in color, but The cost for the 36,000 square miles, not a revision of contours. Kentucky was excluding 1:24,000 mapping already done by against this because it would downgrade the TVA and AMS, was estimated at $7 million and quality of the maps on which so much had five years. The program commenced in 1949 been spent. We felt the standard revision, and was completed in 1956 at a cost of which includes cultural and topographic $6,360,000 or $0.28 per acre or $0.14 per acre changes, would maintain the quality of the for the state. At that time, in 1956, Kentucky maps. We finally compromised and agreed became the best modem-mapped state in the for an interim or photorevision only in areas United States, which was to prove econom- of low relief with many cultural changes, to ically most beneficial to it. be followed by a standard revision. We be- In 1958 the Kentucky State Legislature lieve that in areas of high relief the color transferred a modest cooperative topo- overprint would be very misleading or even graphic mapping revision program to the dangerous to the map users where deep ex- Kentucky Geological Survey (KGS)for plan- cavations or roadcuts had been made. ning and administration for the state. The Items such as the representation of rock program was gradually accelerated until cliffs and strip mines have posed specific about 28 to 30 maps are revised each year. problems difficult of representation. The There are never enough funds to revise all new strip mine laws make it more impera- those maps which need it each year. The tive to represent the stripped areas as realis- uscs placed a topographic engineer into tically as possible, and to show the spoil USGS-STATE COOPERATION banks. Slope maps are important in these and individuals. The uscs agreed to enter areas. the program if we could arrange for funds. The practice of changing a quadrangle A ten-to-12-year program to cost about name when the original populated place for $12,000,000 was outlined to the uscs as a which it was named ceases to exist poses cooperative program on a 50150 matching problems of significance for the consumer in basis. We worked through our U.S. Senators selection of the proper name of a quadrangle and Representatives, in particular Senator when he places an order, particularly if he John Sherman Cooper and Representative deals with two types of maps for the same William Natcher, and the Secretary of quadrangle. We don't believe it is necessary Interior. The program and funding were ap- to change quadrangle names. proved in 1960 and funded. It started in July The byproducts of the topographic 1960, and the uscs put the first parties in the cooperatives such as planimetric maps, ae- field in September. The first completed map rial photographs, orthophotographs, com- of the Austin quadrangle was printed and posites and advance sheets, and bench released in 1961. The 767 maps were com- marks are all very valuable. One of the unre- pleted and printed by the end of October solved problems is the destruction of bench 1978. marks by construction, new highways, or This was the first attempt by the uscs to vandalism. There is a great need to replace map the geology of a state this large on 7.5 them and mark the elevation on each of minute quadrangles at a scale of 1:24,000. them. The Directors and staffs of both Surveys Conversion of maps to the metric system is formulated plans, agreements, map formats, imminent, and it poses distinct problems in a areas of responsibility, location of field of- state such as ours where the 7.5 minute maps fices, review process, and approval process under the present system are in use as bases by both Directors before final cartography for the new geologic maps. We advised the and printing. "Members of the uscs assigned uscs in our case to wait until we had com- to the program were organized as the Branch pleted the areal geologic mapping program of Kentucky Geology. Branch headquarters, before our maps were changed to the metric including an editorial staff, were at system. At present uscs is in the process of Lexington, Kentucky, but actual mapping preparing 1:50,000 metric county topo- was conducted from 18 field offices distrib- graphic maps in the Cincinnati, Louisville, uted throughout the State. The Publications and Paducah areas as bases for future envi- Division of the uses established a carto- ronmental studies. graphic office at Lexington to prepare the There are many uses of topographic maps maps for publication." Final printing and which you well know and no attempt will be printing costs were done by the uscs at their made to enumerate them here, but they run main offices. from mineral resource and industrial de- About 260 persons, including more than velopment to hunting, fishing, environmen- 200 professionals, were assigned to the pro- tal protection, and genealogy. gram by uscs at one time or another. The Because Kentucky was completely mapped most geologists assigned in any one year was with 767 7.5 minute topographic quadran- 61. A total of 661 professional man years gles, it had the bases upon which to build were required by uscs to complete the map- new areal geologic or bedrock maps. In ping and ancillary studies, compared with an 1959, the Kentucky Society of Professional original estimate of 600 man years. Engineers passed a resolution which they KGS furnished 18 persons to the program to submitted to the Governor, Happy Chan- provide coordination, review, field confer- dler, to the KGS,and to other agencies, in ences, stratigraphic information and which they resolved that the areal or bed- nomenclature, core hole supervision, reports rock geology of the entire state needed to be on oil and gas test holes, and review of maps; mapped. The State Geologist and Assistant they filmed geologists' field notes, acquired State Geologist, with consent of Dr. Frank mylar copies of field work, and provided Dickey, President of the University of Ken- economic data to the field map authors. KGS tucky, enlisted support from the Kentucky geologists made subsurface structural in- Chamber of Commerce, Kentucky Oil and terpretations, constructed bedrock topogra- Gas Association, Kentucky Coal Association, phy overlay maps, and mapped several Kentucky Farm Bureau, Kentucky Depart- quadrangles. ments of Highways, Commerce, and Natural Many problems were encountered but Resources, and the administration of the were solved by mutual agreement by field state government, as well as professional and office conferences in Kentucky and at societies, industry, agriculture, education, the uscs main offices in Washington, D.C. PHOTOGRAMMETRIC ENGINEERING & REMOTE SENSING, 1979 and Reston, Virginia. Since this large pro- tuckv. The discoverv of 500.000 tons of a 4- gram covered 40,395 square miles in a given foot seam of coal in an area of western Ken- period of time, it was a real shakedown tucky will more than pay back the cost of the cruise, but one which I believe will prove program for Kentucky. A strippable coal beneficial to all state-USGScooperative pro- seam 5 feet thick under 200 acres would at grams in the future. Our program was $20 per ton be worth more than the entire cooperative in the truest sense of the word, cost of the program. The returns on invest- with the missions and interests of both state ment are estimated at 50 to 1. The maps have and federal governments represented. Pro- been and are being used in the exploration fessional geologists came from a great vari- for coal, oil and gas, fluorspar, limestone, ety of backgrounds and experience; there- and clay. They are also used in planning fore, individual maps vary somewhat in highways and location of dams, in evaluation quality, though continuous quality control of foundation and excavation conditions, in was run on all work. It would be best before preparation of environmental impact state- entering into such a large program to have a ments, for geologic hazard studies, for prepa- period of training of all professional ration ofwater availability and soils maps, by geologists who would participate, and to tourists to collect minerals and fossils, by familiarize them thoroughly with the re- educators in their classes, and by students. gional geology and the work of prior Kentucky is now in a good position to geologists. make many special studies by the utilization The following slides show: of these maps by their professional geologists. 1. Photorevised topographic map. 2. State topographic map, 1:500,000. Some very useful byproducts have come 3. Distribution of topographic map revision, from this cooperative areal geologic map- and number of quadrangles in process in ping program: 154 technical reports, field one year. notes and location maps of field data, core 4. Status of Areal Geologic mapping in hole tests, seven county economic geology Kentucky in 1960 prior to commence- reports by KGS,engineering geology maps, ment of the 7.5 minute mapping program. and 20 bedrock topography overlay maps in 5. Status of the 7.5 minute program in 1965. western Kentucky. 6. Status of the 7.5 minute mapping program in 1973. It has been shown that the topographic 7. Status of the 7.5 minute areal geologic and areal geologic cooperative mapping pro- mapping program in January 1978. grams are economically very valuable to 8. Status of the 7.5 minute program on Oc- Kentucky. Common missions of KGS and tober 30, 1978. uscs, cooperation in mutual problem solu- 9. A typical 7.5 minute areal geologic map, tion, the savings in costs to both parties, the Salem quadrangle, from the Kentucky utilization of the facilities of the professional program. expertise and facilities of both parties, par- 10. Cost of the program, and unit costs. ticularly of the support technical personnel, The program cost a total of $20,927,500 or, and the greater laboratories, instrumenta- in terms of constant 1960 dollars, it cost tion, printing plants, modern methods, and $16,035,000.This compares with an original standardization of the uscs makes coopera- estimate of $12 million. The added eight tive programs very valuable to those who years over the original estimate of ten years participate. This is particularly true for a was the primary cause of the added cost due state which has a small staff and lacks ade- to inflation, higher salaries, and expenses. quate facilities. The uscs also has the ad- Each map, covering about 59 square miles, vantage that they can move large numbers of cost $29,500 on the average, or about 80 personnel into an area to do a program and cents per acre. The KGS cost was about 37 move them out when it is done, whereas a cents per acre, and the uscs 43 cents per state hiring a large number of persons would acre. have to let them go at the end of the program. Kentucky sales of over 100,000 of the maps However, the local knowledge and support indicates they are being used. Demand for by state personnel is of utmost value in a the maps is greatest in the eastern Kentucky cooperative program. coal field, next in the western Kentucky coal As brothers we work together toward field, and finally in the western Kentucky common goals, achieve together, and reap fluorspar district. economic benefits for all the people of our The main impetus behind the mapping states and nation. Let us continue to work program was the stimulus the maps would together in the future and profit by our expe- provide to economic development of Ken- riences in past programs.