by comptroller general report to the congress · of the united states tfifl/t colorado river basin...

BY THE COMPTROLLER GENERAL

Report To T h e Congress OF THE UNITED STATES tfifl/t

Colorado River Basin Water Problems: How To Reduce Their Impact

Unless Federal, State, and local governments begin to work together, the Colorado River Basin--an area embracing parts of seven South- *" - I

western States--will not be able to cope with a probable water shortage soon after the year ' 2000.

GAO recommends that the Congress establish a task force to determine how the parties involved should cooperate to improve the supply and quality of water in the Colorado River Basin.

CED-79-11

MAY 4, 1979

COMPTROLLER GENERAL OF THE UNITED STATES

WASHINGTON. D.C. 20546

To t h e P r e s i d e n t o f t h e S e n a t e a n d t h e S p e a k e r o f t h e H o u s e o f R e p r e s e n t a t i v e s

T h i s r e p o r t d e s c r i b e s t h e n u n e r o u s w a t e r p r o b l e m s e x i s t i n q w i t h i n t h e C o l o r a d o R i v e r B a s i n a n d d i s c u s s e s t h e need f o r t h e S t a t e s and t h e F e d e r a l G o v e r n m e n t t o w o r k t o g e t h e r t o s o l v e t h e s e p r o b l e n s .

W e n a d e o u r r e v i e w t o d e n o n s t r a t e t h e s e v e r i t y o f t h e b a s i n ' s w a t e r p r o b l e m s a n d t o s u q q e s t s o l u t i o n s i n v i e w o f t h e p r o b a b l e water s h o r t a g e t h a t w i l l o c c u r s o o n a f t e r t h e y e a r 2 0 0 0 . T h e i n f o r n a t i o n i n t h i s r e p o r t nay be u s e f u l t o t h e C o n g r e s s i n c o n s i d e r i n q new n e t h o d s o f M a n a g i n g t h e b a s i n ' s w a t e r r e s o u r c e s .

C o p i e s o f t h i s r e p o r t a r e b e i n q s e n t t o a p p r o p r i a t e H o u s e a n d S e n a t e committees; t h e Director , O f f i c e o f M a n a q e n e n t a n d Budqe t ; t h e A c l n i n i s t r a t o r , Env i r o n n e n t a l P r o t e c t i o n A q e n c y ; a n d t h e S e c r e t a r y of t h e I n t e r i o r .

C o n p t r o l l e r G e n e r a l o f t h e U n i t e d S t a t e s

COMPTROLLER GENERAL'S REPORT TO THE CONGRESS

COLORADO RIVER BASIN WATER PROBLEMS: How t o Reduce T h e i r I m p a c t

D I G E S T - - - - - I

The C o l o r a d o R i v e r B a s i n is i n t r o u b l e . I

Soon a f t e r t h e y e a r 2 0 0 0 , t h e r e w i l l n o t b e e n o u g h w a t e r t o s e r v e t h e r e g i o n ' s booming p o p u l a t i o n , s u s t a i n i t s r a p i d i n d u s t r i a l g r o w t h , a n d s u p p o r t i t s f e r t i l e a g r i c u l t u r a l l a n d s . Even b e f o r e 2 0 0 0 , t h e w a t e r i s l i k e l y t o become too s a l t y f o r many u s e s . ( S e e p p . 1, 3 , 6 , and 2 6 . )

T h e s e p r o b l e m s a r e l i k e l y t o o c c u r d e s p i t e t h e m i l l i o n s o f d o l l a r s t h e F e d e r a l Governmen t h a s s p e n t o n w a t e r r e s o u r c e p r o j e c t s i n t h e s e v e n - S t a t e a r e a . Many o f t h e s e c o m p l e x w a t e r p r o b l e m s c a n b e s o l v e d i f F e d e r a l , S t a t e , a n d loca l g o v e r n m e n t s work a s p a r t n e r s t o manage t h e r e g i o n ' s w a t e r . C o o p e r a t i o n , l o n g - r a n g e p l a n n i n g , f i n a n c i a l r e s o u r c e s , and a d e c i s i o n - mak ing body a r e n e e d e d s o o n t o f i n d cost- e f f e c t i v e s o l u t i o n s t o t h e r e g i o n ' s p r o b l e m s .

GAO recommends t h a t t h e C o n g r e s s e s t a b l i s h a t a s k f o r c e , c o n s i s t i n g o f t h e p r i n c i p a l S t a t e and F e d e r a l e x e c u t i v e a g e n c i e s a n d r e p r e s e n t a t i v e s o f water u s e r s , t o d e t e r m i n e t h e t y p e o f o r g a n i z a t i o n b e s t s u i t e d t o meet t h e b a s i n ' s n e e d s and p r o t e c t t h e r i g h t s and i n t e r e s t s o f a l l c o n c e r n e d . ( S e e p p . 54 and 5 5 . )

COOPERATION AND BASINWIDE PLANNING NEEDED

T h e b a s i n c o n s i s t s o f 242 ,000 s q u a r e mi les o f l a n d d r a i n e d b y t h e C o l o r a d o R i v e r i n C a l i f o r n i a , Wyoming, U t a h , C o l o r a d o , N e w Mex ico , A r i z o n a , and Nevada . W a t e r r e s o u r c e p l a n n i n g a n d management h a s b e e n and c o n t i n u e s t o b e f r a g m e n t e d and c r i s i s o r i e n t e d b e c a u s e t h e S t a t e s a n d F e d e r a l Government a r e r e l u c t a n t t o c o o p e r a t e o n b a s i n w i d e p r o b l e n s .

F o r e x a m p l e , s a l i n i t y c o n t r o l p r o j e c t s were n o t p r o p o s e d o r recommended b y t h e S t a t e s u n t i l t h e s a l i n i t y l e v e l t h r e a t e n e d f u t u r e

Tear Sheet. Upon removal, .the r e p o r t ( E D - 7 9 - 1 1 cover date should I IP noted hereon.

1

w a t e r d e v e l o p n e n t . Then t h e r e s p o n s e was t o r u s h t o b u i l d a n y t h i n g t h a t might p o s s i b l y reduce the s a l i n i t y l e v e l . Today, a l m o s t 5 y e a r s a f t e r t h e basin's s a l i n i t y c o n t r o l program was a u t h o r i z e d , i t i s d o u b t f u l t h a t s a l t i n the r i v e r w i l l be r educed as much as p r e d i c t e d because a t l e a s t 6 of 17 pro- j e c t s i n t h e program nay b e i n t r o u b l e . ( S e e pp. 28 t o 30 , 4 2 , and 4 4 and 4 5 . )

HOW MUCH TIME DOES THE B A S I N HAVE? --.--

I t depends who you a s k . T h e U . S . Bureau o f Rec lamat ion estimates t h a t t h e b a s i n w i l l r u n o u t o f w a t e r f o r f u t u r e g rowth i n 2020. O t h e r s a r e less o p t i m i s t i c , f o r e s e e i n q an impendinq w a t e r s h o r t a g e a round 2000. ( S e e pp. 6 and 7.)

Actually, a s o l u t i o n is needed b e f o r e then. I t t a k e s a t l e a s t 30 y e a r s t o p l a n and con- s t ruct a w a t e r s t o r a g e o r d i s t r i b u t i o n f a c i l i t y . T h e r e f o r e , t h e p l a n n i n g and dec is ionraakinq o r q a n i z a t i o n GAO e n v i s i o n s s h o u l d have been i n o p e r a t i o n i n 1 9 7 0 i f the most p e s s i m i s t i c e s t i m a t e s a r e v a l i d , or need n o t be e s t a b l i s h e d u n t i l 1990 i f t h e o p t i m i s t i c e s t i n a t e s a r e a c c u r a t e . ( S e e p . 4 9 . )

HOW MUCH - WATER I S THERE? ---- ---

I t ' s d i f f i c u l t t o s a y . Data o n r i v e r f l o w i s l i m i t e d and i s n o t an a c c u r a t e b a s i s f o r p r o j e c t i o n o f f u t u r e s u p p l i e s . Answers d i f f e r , dependinq on what b a s e y e a r s a r e used t o p r o j e c t how nuch water i s n o r n a l f o r t h e b a s i n . P r e d i c t i n g t h e f u t u r e s u p p l y i s e v e n more d i t t i c u i t when c o n s i d e r i n g f u t u r e denands on t h e b a s i n ' s w a t e r . L i t i g a t i o n o v e r I n d i a n w a t e r r i g h t s nay i n v o l v e a s much a s one-third of t h e b a s i n ' s water. ( S e e pp. .6 to 8 . )

WHAT ABOUT THE - SALINITY - QUESTION?

Water s a l i n i t y l e v e l s ~ t h e a n o u n t s of d i s s o l v e d s o l i d s o r s a l t s ~ p r e s e n t t h e b a s i n w i t h o n e o f i t s n o s t p r e s s i n q and

d i f f i c u l t p r o b l e n s . A s e a r l y a s 1 9 6 1 , i n c r e a s i n q s a l i n i t y l e v e l s b e q a n t o t h r e a t e n d e v e l o p n e n t o f t h e Upper B a s i n , w e r e danag- i n g c r o p s i n t h e Lower B a s i n , a n d were t h e s u b j e c t o f i n t e n s e n e g o t i a t i o n s w i t h Mexico .

I n 1 9 7 4 , t h e C o n g r e s s a u t h o r i z e d a s a l i n i t y c o n t r o l p r o g r a m . I n a d e p a r t u r e f r o n n o r m a l w a t e r r e s o u r c e l e g i s l a t i o n , t h e C o n g r e s s d i d n o t r e q u i r e t h e s a l i n i t y c o n t r o l p r o j e c t s t o ."".- meet s t a n d a r d c o s t - b e n e f i t c r i t e r i a . ( S e e pp. 2 5 and 27 to 29.)

T h i s p r o g r a m was i n t e n d e d t o n a i n t a i n t h e s a l i n i t y a t 1 9 7 2 l e v e l s a t l e a s t t h r o u g h 1 9 9 0 . However, r e c e n t s t u d i e s i n d i c a t e t h a t some o f t h e p r o j e c t s w i l l n o t r e d u c e t h e s a l i n i t y l e v e l a s n u c h a s a n t i c i p a t e d , a n d t h e r e are n o f i r m p l a n s f o r c o n t r o l l i n g *

s a l i n i t y a f t e r 1990 . C o n s t r u c t i o n cos ts f o r t h e n a j o f d e s a l i n a t i o n p l a n t d e s i q n e d t o meet t h e U.S. c o n m i t n e n t t o s u p p l y f r e s h w a t e r t o Mexico h a v e almost t r i p l e d . GAO r e c o r n e n d s t h a t t h e C o n g r e s s t e n p o r a r i l y d e f e r f u n d i n q f o r t h i s p l a n t u n t i l t h e B u r e a u r e e v a l u a t e s i t s f e a s i b i l i t y a s wel l as a l t e r n a t i v e s w h i c h may p r o v i d e a more e c o n o n i c a l s o l u t i o n . (Bee pp. 2 5 , 2 6 , 3 0 , 3 1 , 3 8 d a n d 4 3 . )

ARE THERE OTHER WATER -- PROBLEMS IN THE BASIN?

C e r t a i n l y . I n a d d i t i o n t o water s u p p l y a n d s a l i n i t y p r o b l e m s , t h e B u r e a u and S t a t e s h a v e n o t b e e n a b l e t o a q r e e o n how much water s h o u l d b e r e t a i n e d i n r e s e r v o i r s , c r i t e r i a f o r d e t e r m i n i n g a water s h o r t a g e , how t h e r e s e r v o i r s s h o u l d be managed d u r i n g a s h o r t a g e , and how w a t e r s h o r t a q e s s h o u l d b e a l l o c a t e d among t h e S t a t e s t o meet t h e c o n n i t n e n t t o s u p p l y w a t e r t o Mexico . GAO b e l i e v e s t h a t t h e s e p r o b l e m s c a n b e s o l v e d t h r o u q h c o o p e r a t i o n a n o n q a l l t h e p a r t i e s . ( S e e p p . 1 7 a n d 1 8 . )

AGENCY COMMENTS AND GAO EVALUATION ------- --- -------- The D e p a r t m e n t o f t h e I n t e r i o r d i d n o t o b j e c t t o GAO's r ecor - inenda t ion t h a t t h e C o n g r e s s a p p o i n t a S t a t e - F e d e r a l t a s k f o r c e t o s t u d y t h e i s s u e s a n d reconmend t h e t y p e o f

Tear Sheet

organizational and decisionmaking e n t i t y needed t o achieve basinwide planning and management of the water resources,

However, t h e Environmental P r o t e c t i o n Agency and t h e S t a t e s d i s a g r e e . The Agency p r e f e r s s t r e n g t h e n i n g e x i s t i n g o r g a n i z a t i o n s , and t h e S t a t e s b e l i e v e e x i s t i n g management is a d e q u a t e .

GAO c o n t i n u e s t o b e l i e v e t h a t a b a s i n w i d e e n t i t y w i t h a u t h o r i t y i s needed t o p l a n and manage t h e b a s i n ' s w a t e r r e s o u r c e s . T h i s i s b e c a u s e s e v e r e and complex i s s u e s a re f a c i n g t h e b a s i n and b e c a u s e e x i s t i n g e n t i t i e s have t ended t o f o c u s on i n d i v i d u a l i s s u e s , r a t h e r t h a n d e a l i n g w i t h s u p p l y , q u a l i t y , w a t e r r i g h t s , e t c . , on a compre- h e n s i v e b a s i s . ( S e e pp. 54 and 55.)

Most o f t h e a g e n c i e s commenting on t h e report d i d n o t b e l i e v e f u n d i n g s h o u l d b e d e f e r r e d f o r t h e d e s a l i n a t i o n p l a n t , p r i m a r i l y b e c a u s e o f t h e p o t e n t i a l loss o f w a t e r i n a w a t e r - s h o r t a r e a and t h e need t o meet a n a t i o n a l o b l i g a t i o n f o r improving t h e q u a l i t y o f w a t e r t o Mexico. However, i n l i g h t o f t h e i n c r e a s e d cost of t h e p l a n t , GAO b e l i e v e s t h a t o t h e r , less c o s t l y a l t e r n a t i v e s may e x i s t and s h o u l d b e e v a l u a t e d b e f o r e p r o c e e d i n g w i t h c o n s t r u c t i o n . ( S e e pp. 4 4 and 4 5 . )

DIGEST

GLOSSARY

CHAPTER

1 INTRODUCTION D e s c r i p t i o n o f t h e b a s i n A l l o c a t i o n o f t h e waters

amonq t h e S t a t e s C o n p e t i n q n e e d s f o r water S c o p e o f r e v i e w

WATER SUPPLY I S INSUFFICIENT TO MEET FUTURE DEMANDS

B u r e a u ' s p l a n s a n d d e c i s i o n s may b e b a s e d o n o p t i m i s t i c e s t i m a t e s o f t h e a n n u a l w a t e r s u p p l y

S u f f i c i e n t water f o r p r e s e n t b u t n o t f u t u r e d e m a n d s

Ground water d e v e l o p m e n t h a s c a u s e d p r o b l e m s i n s o n e a r e a s

I n d i a n a n d F e d e r a l r e s e r v e d water r i q h t s n e e d t o b e q u a n t i f i e d and s e t t l e d

C r i t e r i a a r e n e e d e d f o r o p e r a t i n g s t o r a g e r e s e r v o i r s d u r i n g s h o r t a g e s

F u r t h e r e f f o r t s a r e n e e d e d t o s a l v a g e , c o n s e r v e , a n d a u g m e n t t h e w a t e r s u p p l y

C o n c l u s i o n s R e c o n n e n d a t i o n s t o t h e S e c r e t a r y

o f t h e I n t e r i o r Aqency c o n n e n t s a n d o u r e v a l u a t i o n

CURRENT SALINITY CONTROL PROGRAM MAY NOT B E C O S T E F F E C T I V E I N ACHIEVING DESIRED RESULT

s a l i n i t y l e v e l s a r e h i q h i n t h e C o l o r a d o R i v e r

P r o q r a n s t o s o l v e t h e s a l i n i t y p r o - b lem a r e c o s t l y a n d n a y n o t work

S a l i n i t y c o n t r o l p r o q r a n n o t c o n s i d e r e d a d e q u a t e f o r m e e t i n q b a s i n s t a n d a r d s

P a g e

i

APPENDIX

V I I

V I I I

D e s a l t i n g w a t e r f o r Mexico- a c o s t l y p r o p o s i t i o n

C o n c l u s i o n s Recommendations Agency c o n n e n t s and o u r e v a l u a t i o n

NEW METHODS OF MANAGING THE B A S I N ' S WATER RESOURCES ARE NEEDED

Lack o f r e q i o n a l a u t h o r i t y i n t h e b a s i n h a s r e s u l t e d i n i n e f f e c t i v e management

I n t e r i o r and o t h e r s h a v e r e c o g n i z e d t h e need f o r c h a n g e s i n n a n a g e n e n t

C o n c l u s i o n s ~ e c o m n e n d a t i o n s t o t h e Conqre s s Agency c o n n e n t s and o u r e v a l u a t i o n

S e l e c t e d l e g i s l a t i o n , c o n p a c t s , t r e a t i e s , a g r e e m e n t s , and c o u r t d e c r e e s a f f e c t i r i q t h e o p e r a t i o n s o f t h e C o l o r a d o R i v e r

L i s t i n g o f p r i n c i p a l r e p o r t s and d o c u n e n t s used d u r i n q r e v i e w

A v a i l a b i l i t y and u s e o f g round w a t e r i n t h e C o l o r a d o R i v e r B a s i n

C o l o r a d o R i v e r B a s i n dams and r e s e r v o i r s

E f f o r t s t o s a l v a g e , c o n s e r v e , and augment t h e water s u p p l y i n t h e C o l o r a d o R i v e r

S a l i n i t y C o n t r o l A c t p r o j e c t s ( a c t i v e ) a u t h o r i z e d f o r c o n s t r u c t i o n

I n d i a n w a t e r r i g h t c l a i m s

L e t t e r d a t e d J a n u a r y 8 , 1979 , f rom t h e Depar tment o f t h e I n t e r i o r

L e t t e r d a t e d J a n u a r y 2 , 1979 , f rom t h e Env i ronmen ta l P r o t e c t i o n Agency

Page

X I

XI I

X I 1 1

XIV

XV

L e t t e r d a t e d November 2 8 , 1 9 7 8 , f r o m t h e I n t e r n a t i o n a l Boundary and Water C o n m i s s i o n

L e t t e r d a t e d Decenber 8 , 1 9 7 8 , f r o n t h e S t a t e o f Nevada

L e t t e r d a t e d Decenber 1, 1 9 7 8 , f r o n t h e S t a t e o f Mew Mexico

L e t t e r d a t e d Novenher 3 0 , 1 9 7 8 , f r o n t h e S t a t e o f Wyoming

L e t t e r d a t ed Decenber 11, 1 9 7 8 , f r o n t h e S t a t e o f A r i z o n a

L e t t e r d a t e d Decenber 4 , 1978 , f r o m t h e S t a t e o f C a l i f o r n i a

B u r e a u

CAP

EPA

GAO

ABBREVIATIONS ----

B u r e a u o f R e c l a m a t i o n # G C ff007h

C e n t r a l A r i z o n a P r o j e c t

E n v i r o n n e n t a l P r o t e c t i o n Aqency ^ ~ " ~ o c f d

G e n e r a l Accountinq O f f i c e

GLOSSARY

Appurtenant Water

Aquifer

Auqmentation

Consumptive use o r deple- t i o n

Dependable water supply

Desalination

Overdraft

Phreatophyte

S a l i n i t y

Water salvaqe

Water shortage

Volune of water t h a t will cover an area of 1 a c r e t o a depth of 1 foo t ( 4 3 , 5 6 0 cubic f e e t ) .

Water t h a t flows over , under, o r borders on Federal reserved lands .

Layers of s o i l o r rocks bearing sub- sur face water (underground r e s e r v o i r s ) .

Supplenenting the usable water supply i n a r i v e r through human e f f o r t s .

Water t h a t i s d iver ted from a sur face s t r e a n o r qround water aqu i fe r and not returned t o the s t r e a n o r aqui fer f o r f u t u r e use.

The anount of water t h a t can be depleted annually over a lonq period of t i n e , without lnwerina t h e l e v e l s of qround water o r su r face water s toraqe .

Renovinq s a l t and o ther i n p u r i t i e s f ron water.

Withdrawals f ron a n a q u i f e r exceed the amount of water recharqe.

A deep rooted plant t h a t obta ins i t s water from t h e water t a b l e o r the l aye r of s o i l j u s t above i t .

The t o t a l of a l l dissolved s o l i d s o r s a l t s present i n f r e s h w a t e r , m e a s u r e d i n t e r n s of p a r t s p e r mi l l ion or r -u l l iqrans per l i t e r . These neasure- ments a r e e s s e n t i a l l y the sane.

Saving water f o r benef i c i a l uses t h a t would nornal ly be l o s t t o hunan use.

Available water supply is n o t s u f f i c i e n t t o s a t i s f y t h e l e g a l r i g h t s t o water and/or meet denands .

CHAPTER 1

INTRODUCTION

S i n c e t h e t u r n o f t h e c e n t u r y , t h e F e d e r a l Governmen t , p r i m a r i l y t h r o u g h t h e B u r e a u o f R e c l a n a t i o n , h a s s p e n t h u n d r e d s o f m i l l i o n s o f d o l l a r s i n p l a n n i n g , c o n s t r u c t i n q , o p e r a t i n g , a n d m a i n t a i n i n g w a t e r f a c i l i t i e s i n t h e C o l o r a d o Ãˆ6t̂ / R i v e r B a s i n . O r i g i n a l l y , f a c i l i t i e s were c o n s t r u c t e d t o F e c l a i n a r l d a n d s e n i a r i d l a n d s i n t h e s e v e n b a s i n S t a t e s t h r o u g h i r r i g a t i o n . ( T h e b a s i n S t a t e s a r e C a l i f o r n i a , Wyoming, U t a h , C o l o r a d o , N e w Mex ico , A r i z o n a , and Nevada . ) L a t e r , t h e s e f a c i l i t i e s were e x p a n d e d t o i n c l u d e power g e n e r a t i o n ; f l o o d c o n t r o l ; n u n i c i p a l a n d i n d u s t r i a l u s e s ; r e c r e a t i o n a l a c t i v i t i e s ; p r o v i d i n g w a t e r t o Mex ico ; and f i s h , w i l d l i f e , a n d e n v i r o n i i i e n t a l p r o t e c t i o n . A l t h o u g h 1 9 7 7 was o n e o f t h e d r i e s t y e a r s o n r e c o r d , t h e b a s i n S t a t e s were a b l e t o r e c e i v e t h e i r n o r n a l , o r c lose t o n o r n a l , amoun t o f C o l o r a d o R i v e r w a t e r b e c a u s e o f t h e s e f a c i l i t i e s .

The B u r e a u o f R e c l a m a t i o n h a s p l a n n e d w a t e r p r o j e c t s f o r i r r i g a t i o n , p o w e r , a n d o t h e r b e n e f i c i a l u s e s . E x i s t i n q w a t e r f a c i l i t i e s make a v a i l a b l e f o r c o n s u n p t i v e u s e b e t w e e n 70 a n d 80 p e r c e n t o f t h e r i v e r w a t e r a v a i l a b l e t o t h e Un i t ed S t a t e s i n t h e b a s i n . O t h e r p r o j e c t s a r e c u r r e n t l y b e i n g p l a n n e d t o d e v e l o p t h e r e m a i n i n g w a t e r r e s o u r c e s .

DESCRIPTION OF THE BASIN

The C o l o r a d o R i v e r o r i g i n a t e s i n t h e Rocky M o u n t a i n s o f C o l o r a d o a n d Wyoming, f l o w s s o u t h w e s t a b o u t 1 , 4 0 0 miles, a n d e m p t i e s i n t o t h e G u l f o f C a l i f o r n i a . I t d r a i n s a n a r e a o f 2 4 2 , 0 0 0 s q u a r e n i l e s i n s e v e n S t a t e s , w h i c h r e p r e s e n t s o n e - t w e l f t h of t h e a r ea o f t h e U n i t e d S t a t e s , e x c l u d i n g A l a s k a . T h e b a s i n h a s c l i n a t i c e x t r e n e s o f y e a r - r o u n d snow c o v e r a n d h e a v y p r e c i p i t a t i o n o n t h e h i g h p e a k s o f t h e R o c k i e s a n d d e s e r t c o n d i t i o n s w i t h v e r y l o w p r e c i p i t a - t i o n i n s o u t h e a s t C a l i f o r n i a a n d s o u t h w e s t A r i z o n a . The C o l o r a d o R i v e r is c o n t r o l l e d by s e v e r a l d a n s a n d r e s e r v o i r s . The G l e n Canyon Dan a n d Lake P o w e l l s t o r e n o s t o f t h e Upper B a s i n ' s water a n d c o n t r o l r e l e a s e s t o t h e Lower B a s i n . The Hoover Dan a n d Lake Mead s t o r e n o s t o f t h e Lower B a s i n ' s s u p p l y a n d c o n t r o l t h e a n o u n t o f w a t e r r e l e a s e d t o Lower B a s i n u s e r s .

Most l a n d i n t h e r i v e r b a s i n b e l o n q s t o t h e F e d e r a l G o v e r n n e n t , a s shown i n t h e f o l l o w i n q t a b l e .

P e r c e n t o f owner sh i UPPe r L E w e Bas in

F e d e r a l 60 P r i v a t e 20 I n d i a n t r u s t 15 S t a t e / m u n i c i p a l -- 5

B a s i n .-.--

ALLOCATION OF THE WATERS AMONG THE STATES

The Co lo rado R i v e r h a s been d e s c r i b e d a s the n o s t r e g u l a t e d r i v e r i n t h e Uni ted S t a t e s . I t is r e g u l a t e d i n a c c o r d a n c e w i t h numerous l a w s , compacts , c o u r t d e c r e e s , and a g r e e m e n t s , c o l l e c t i v e l y known a s t h e "Law o f t h e R i v e r . " ( S e e app . I . )

I n 1 9 2 2 , t h e s e v e n S t a t e s i n t h e r e g i o n a q r e e d t o d i v i d e t h e w a t e r s o f t h e Co lo rado R i v e r s y s t e m i n t o an upper and lower d i v i s i o n . The S t a t e s o f t h e uppe r d i v i s i o n a r e Co lo rado , New Mexico, Utah , and Wyoninq; w h i l e t h e S t a t e s of t h e l ower d i v i s i o n a r e Ar i zona , C a l i f o r n i a , and Nevada. A r i z o n a , N e w Mexico, and Utah r e c e i v e w a t e r f rom b o t h d i v i s i o n s . The n a p o n page 4 shows t h e b o u n d a r i e s of t h e d i v i s i o n s ( h e r e i n a f t e r r e f e r r e d t o a s s u b - b a s i n s ) . The ag reemen t , o r Co lo rado R i v e r Compact, p r o v i d e d f o r apportion- i n g a n n u a l l y 1 5 m i l l i o n a c r e - f e e t ( n a f ) of consumpt ive use of w a t e r e q u a l l y between t h e two s u b - b a s i n s . The d i v i s i o n p o i n t i s a t Lee F e r r y i n Ar i zona j u s t below Glen Canyon Dan. I n a d d i t i o n t o t h e 1 5 raaf a l l o c a t i o n , t h e Lower B a s i n was g i v e n t h e r i g h t t o i n c r e a s e i t s u s e by 1 maf a y e a r , and t h e compact p r o v i d e d f o r t h e p o s s i b i l i t y of a w a t e r t r e a t y w i t h Mexico. ( S e e p. 5 6 . ) The compact a l s o p r o v i d e d t h a t a t l e a s t 75 n a f would b e d e l i v e r e d t o t h e Lower B a s i n i n a n y c o n s e c u t i v e 10-year p e r i o d . The s o u r c e o f t h e a d d i t i o n a l 1 raaf a l l o c a t e d t o t h e Lower B a s i n and t h e o b l i g a t i o n s o f e a c h b a s i n t o f u l f i l l t h e Mexican Water T r e a t y coramitnent a r e matters of d i s p u t e among t h e S t a t e s .

I n 1944 t h e Uni ted S t a t e s e n t e r e d i n t o a t r e a t y w i t h Mexico whereby t h e Uni ted S t a t e s would d e l i v e r 1 .5 n a f t o Mexico a n n u a l l y . T h i s i n c r e a s e d t h e a n o u n t of w a t e r a l l o c a t e d o u t o f t h e r i v e r t o 1 7 . 5 naf a n n u a l l v . I n 1 9 7 3 an a q r e e n e n t was r e a c h e d unde r a n i n t e r p r e t a t i o n o f t h e t r e a t y t o r e q u i r e t h e Uni ted S t a t e s t o d e l i v e r w a t e r h a v i n g a s a l i n i t y c o n t e n t o n l y somewhat h i g h e r t h a n t h a t of t h e w a t e r s r e a c h i n g I n p e r i a l Dan.

I n 1 9 4 8 t h e f o u r Upper B a s i n S t a t e s , p l u s A r i z o n a , e n t e r e d i n t o t h e Upper C o l o r a d o R i v e r B a s i n C o n p a c t , w h i c h a p p o r t i o n e d r i g h t s t o t h e Upper B a s i n w a t e r a n o n q t h e S t a t e s . T h e B o u l d e r Canyon P r o j e c t A c t o f 1 9 2 8 ( 4 3 U.S.C. 617) a p p o r - t i o n e d 7 . 5 n a f of t h e Lower B a s i n ' s a l l o c a t i o n a n o n q t h e t h r e e Lower B a s i n S t a t e s ; h o w e v e r , t h e S t a t e s d i d n o t a q r e e w i t h t h e a n o u n t s . A f t e r much c o n t r o v e r s y , t h e S u p r e n e C o u r t c o n f i r n e d tlie a l l o c a t i o n s i n i t s . A r i z o n a - v . C a l i f o r n i a d e c r e e o f 1 9 6 4 - -

I n sunn ia ry , a s a r e s u l t o f t h e c o n p a c t s , t h e B o u l d e r Canyon P r o j e c t A c t , t h e Mex ican Water T r e a t y , a n d t h e S u p r e n e C o u r t d e c r e e , t h e C o l o r a d o R i v e r w a t e r s h a v e b e e n a p p o r t i o n e d a s f o l l o w s :

--Each s u b - b a s i n i s e n t i t l e d t o c o n s u n p t i v e l y u s e 7 . 5 n a f a n n u a l l y .

- - In t h e Lower B a s i n t h e 7 . 5 n a f was a p p o r t i o n e d as 4 . 4 naf t o C a l i f o r n i a , 2 . 8 n a f t o A r i z o n a , a n d 3 0 0 , 0 0 0 a c r e - f e e t t o N e v a d a .

- - In a d d i t i o n , the Lower B a s i n h a s b e e n a l l o c a t e d 1 n a f w h i c h h a s n o t b e e n d i v i d e d a n o n q t h e Lower B a s i n S t a t e s .

--The Upper B a s i n ' s e n t i t l e m e n t a p p o r t i o n e d 5 0 , 0 0 0 a c r e - f e e t t o A r i z o n a ; t h e r e n a i n d e r o f t h e 7 . 5 maÂ a p p o r - t i o n e d 51.75 p e r c e n t t o C o l o r a d o , 1 1 . 2 5 p e r c e n t t o N e w Mex ico , 2 3 p e r c e n t to U t a h , a n d 1 4 p e r c e n t t o Wyoming.

--Under t h e t r e a t y w i t h M e x i c o , t h e U n i t e d S t a t e s is o b l i q a t e c l t o d e l i v e r 1 . 5 n a f a n n u a l l y t o Mex ico .

- - F i v e I n d i a n r e s e r v a t i o n s a l o n g t h e C o l o r a d o R i v e r h a v e a g r a n t of r i g h t s t o d i v e r t a b o u t 1 naf , t o b e d e d u c t e d f r o n C a l i f o r n i a a n d A r i z o n a ' s e n t i t l e - m e n t .

D e n a n d s f o r water i n b o t h s u b - b a s i n s h a v e b e e n m a i n l y f o r a g r i c u l t u r a l , n u n i c i p a l , a n d i n d u s t r i a l u s e t o s e r v e t h e n u s h r o o n i n q p o p u l a t i o n , s u s t a i n t h e t r a d i t i o n a l l y h i q h i n d u s t r i a l g r o w t h r a t e s , a n d s u p p o r t s o n e o f t h e N a t i o n ' s roost f e r t i l e a g r i c u l t u r a l l a n d s . R e c e n t l y , d e n a n d s h a v e i n c r e a s e d f o r water t o u s e i n d e v e l o p i n g e n e r q y r e s o u r c e s . The N a t i o n ' s l a r q e s t r e s e r v e s o f coal , o i l s h a l e , t a r s a n d s , and u r a n i u n a r e l o c a t e d i n t h e U p p e r B a s i n . D e v e l o p n e n t o f t h e s e r e s o u r c e s w i l l d e p e n d o n nany f a c t o r s , i n c l u d i n g a v a i l a b i l i t y o f water. H i s t o r i c a l w a t e r u s e p a t t e r n s may

UNITED STATES DEPARTMENT OF THE INTERIOR

BUREAU OF RECLAMATION

COLORADO RIVER BASIN OCTOttt 1Ã§7

be a l t e r e d i f these resources a r e developed because p a r t o f the water nay have t o cone from current users.

During recent years nat ional concern has grown over the use of water f o r the preservat ion of f i s h and wild- l i f e and f o r recrea t ion . Sone f e e l these uses of water w i l l be given even hiqher p r i o r i t y i n the fu ture .

SCOPE OF REVIEW

Many of the f a c t s we c i t e i n t h i s r epor t were taken from r e p o r t s issued by the Bureau of Reclamation, U.S. Water Resources Council, Environnental Protect ion Aqency ( E P A ) , Upper Colorado River Comnission, National Water Connission, the seven basin S t a t e s , the U.S. Geoloqical Survey (USGS), and various agencies of the Departnent of the I n t e r i o r . Appendix 11 l i s t s the p r inc ipa l r e p o r t s , documents, and s t u d i e s we used i n preparing t h i s r epor t . We a l s o obtained information from conqressional hearings and from the books, records, and r e p o r t s of the Bureau of Reclamation a t S a l t Lake Ci ty , Utah; Boulder Ci ty , Nevada; Denver, Colorado; the Bureau of Indian A f f a i r s a t Phoenix, Arizona; and EPA i n Washington, D.C. I n add i t ion , we interviewed water resources o f f i c i a l s i n the seven S t a t e s and Departnent of the I n t e r i o r agencies, the Congressional Research Service, environmental groups, E P A , and USGS.

CHAPTER 2 -----

WATER SUPPLY ---. IS INSUFFICIENT - -

TO MEET FUTURE DEMAND? - -- --.---- --- --

Most a u t h o r i t i e s aqree t h e r e w i l l be a fu tu re water shortage i n the basin. The question i s when a n d how bar). Many f e e l t h a t the basin a s a whole w i l l experience a sur face water shortaqe sometime a f t e r the year- 2000 . Others say i t w i l l occur sooner and be nore severe than projected by the Bureau of Reclanation.

Innediate ac t ions a r e needed i f a projected water shortage i n t he basin i s t o be avoided o r inpacts n in in ized . Although sone neasures have been taken t o salvaqe and conserve water, not enough has been done and these s t eps w i l l only postpone, not prevent , the shortaqe. Ef fo r t s t o increase supply have not been pronisinq t o d a t e and we be l ieve p l a n s s h o u l d be developed and implenented now t o minimize the adverse e f f e c t s of f u t u r e shortaqes. The pr inary i ssues t h a t need t o be addressed are :

--The need f o r water plans w h i c h r e f l e c t t h e d i f f e r e n t supply es t imates and present a number of a l t e r n a t i v e s t r a t e g i e s f o r n in in iz inq e f f e c t s of supply de f i c i enc ies ;

- t h e n e e d t o reduce qround water overd ra f t s ;

--the inpact of Indian and Federal reserved water r i g h t s on the water sys ten;

--the need t o spec i fy t h e c r i t e r i a f o r dec lar inq water shortages and rese rvo i r s to raqe anil operat ion clurinq l o w - f l o w periods; and

--the need t o i nc r ea se e f f o r t s t o conserve and supplement the water supply.

BUREAU'S PLANS AND DECISIONS MAY BE -.------ -- BASED ON OPTIMISTIC E S T I M A T E S OF THE -- - ANNUAL WATER SUPPLY -----

Important decis ions- a r e beincg nade--or not be inq nacie-- based on es t imates of fu tu re water supply i n the basin t h a t a r e quest ionable a n d nay be o p t i n i s t i c . The Bureau of Reclanation e s t i n a t e s f u t u r e supp l i e s f r o n a c t u a l records and est imations f o r a period t h a t nay not r e f l e c t the long-tern average. Water supply e s t i n a t e s nade b y o t h e r s a r e based on both lonqer and s h o r t e r periods and r e s u l t

i n f o r e c a s t s o f a n o r e s e v e r e s h o r t a g e t h a t w i l l o c c u r s o o n e r t h a n t h e 2 0 2 0 R u r e a u p r o j e c t i o n .

Most d e c i s i o n s c o n c e r n i n g t h e n e e d f o r a n d t y p e o f F e d e r a l p ro jec t s a n d p r o g r a m s h a v e b e e n b a s e d o n t h e B u r e a u ' s water s u p p l y es t imates . S t u d i e s t o n e a s u r e t h e C o l o r a d o R i v e r water s u p p l y g e n e r a l l y s t a r t w i t h a n e s t i n a t e o f t h e " v i r q i n " or u n c i e p l e t e d f l o w a t L e e P e r r y , A r i z o n a , w h i c h i s t h e most u n i v e r s a l l y u s e d i n d i c a t o r o f t h e r i v e r ' s w a t e r y i e l d . E s t i m a t e s f o r t h e y e a r s 1 8 9 6 t o 1 9 2 2 were n a d e f ron r e c o r d s o f t h e f l o w a t o t h e r p o i n t s o n t h e n a i n s t r e a n and i t s n a j o r t r i b u t a r i e s a n d estimates o f t h e d e p l e t i o n s i n t h e U p p e r B a s i n . S i n c e 1 9 2 2 t h e f l o w h a s b e e n n e a s u r e d b y USGS g a u q e s l o c a t e d u p s t r e a n f r o n L e e F e r r y . A c c o r d i n q t o t h e B u r e a u , t h e v i r g i n f l o w a t L e e F e r r y h a s r a n q e d f r o n a r i a x i n u n f l o w o f 24 raaf i n 1 9 1 7 t o a l o w o f 5 . 4 7 maf i n 1 9 7 7 ; t h e l o n g - t e r n a v e r a q e h a s b e e n a b o u t 1 4 . 8 naf.

Many d e c i s i o n s i n v o l v i n q r i v e r d e v e l o p m e n t h a v e b e e n b a s e d o n v a r y i n g e s t i n a t e s o f a n n u a l v i r g i n f l o w s , p r i n a r i l y b e c a u s e o f c o n d i t i o n s p r e s e n t when d e c i s i o n s w e r e made . T h e f o l l o w i n g a r e e x a n p l e s o f e s t i n a t e s used when i n p o r t a n t d e c i s i o n s were n a d e .

E v e n t

P e r i o d o n A v e r a q e a n n u a l w h i c h est imates v i r g i n f l o w

w e r e b a s e d Years L e e F e r r y

C o l o r a d o R i v e r Conpac t n e g o t i a t i o n s 1 9 0 3 - 1 9 2 1 1 9 1 8 . 0

S t u d i e s f o r t h e B o u l d e r Canyon project 1897-1928 32 1 6 . 9

Upper C o l o r a d o R i v e r C o n p a c t

1 9 5 6 C o l o r a d o R i v e r S t o r a g e P r o j e c t Act 1914-1947 3 4 1 5 . 5

1 9 6 8 C o l o r a d o R i v e r B a s i n P r o j e c t A c t * 1906-1967 6 2 1 5 . 0

T h e C o l o r a d o R i v e r water w a s d i v i d e d a n o n q t h e S t a t e s b a s e d o n f l o w s i n e x c e s s o f t h e l o n g - t e r n a v e r a q e . T h e B u r e a u ' s r e c o r d s i n d i c a t e t h a t t h e h i g h e s t f l o w s o c c u r r e d p r i o r t o 1 9 2 9 . I t is i n t e r e s t i n g t o n o t e t h a t t h e 1 9 2 2

C o l o r a d o R i v e r Compact w a s b e i n g n e g o t i a t e d d u r i n q t h e wet- t e s t 1 0 - y e a r p e r i o d o f r e c o r d ( 1 8 . 8 n a f f r o n 1 9 1 4 t o 1 9 2 3 ) . R e c o r d s i n d i c a t e t h a t t h e n e q o t i a t o r s c o n s i d e r e d t h e a v e r a q e f l o w a t Lee F e r r y t o b e b e t w e e n 1 6 t o 1 8 n a f w h i c h is c o n s i d e r a b l y q r e a t e r t h a n a n y o t h e r p e r i o d a f t e r t h a t t i n e , i n c l u d i n g t h e B u r e a u ' s e s t i m a t e d l o n g - t e r m a n n u a l a v e r a q e o f 1 4 . 8 n a f a n d t h e o e r i o d o f a c t u a l r e c o r d f r o n 1 9 2 2 t o 1 9 7 7 , w h i c h a v e r a g e d 13.7 n a f .

B u r e a u e s t i n a t e s c h a l l e n q e d by -- -------. --- s e v e r a l g r o u p s

C o n s i d e r a b l e d i s a g r e e n e n t e x i s t s a b o u t f u t u r e a n n u a l r i v e r f l o w s . S o n e p e o p l e c o n t e n d t h a t b e c a u s e o f t h e h i g h l y v a r i a b l e h i s t o r i c a l f l o w s , i t i s a l n o s t i n p o s s i b l e t o p r e d i c t a c c u r a t e f u t u r e a v e r a g e a n n u a l v i r q i n f l o w s .

The estimate of 1 4 . 8 n a f , w h i c h t h e B u r e a u c u r r e n t l y u s e s i n s t u d i e s a n d p l a n n i n g f o r f u t u r e w a t e r d e v e l o p n e n t , i s o n e o f t h e n o r e o p t i m i s t i c p r e d i c t i o n s w e n o t e d . A s shown b e l o w , s e v e r a l o t h e r g r o u p s e s t i n a t e t h e C o l o r a d o R i v e r ' s a v e r a g e a n n u a l v i r g i n f l o w a s s i q n i f i c a n t l y l e s s - - u p t o 1 . 3 maÂ less.

--Upper C o l o r a d o R i v e r C o n n i s s i o n o f f i c i a l s s t a t e d t h a t t h e y c o n s i d e r t h e q a u q e d r e c o r d s f o r t h e 1922-77 p e r i o d a s t h e n o r e r e l i a b l e a n d a c c e p t t h e e s t i n a t e o f 1 3 . 7 n a f a s t h e f u t u r e a n n u a l v i r g i n f l o w .

- - E n g i n e e r s f r o n t h e Lower B a s i n S t a t e s t e s t i f i e d b e f o r e t h e C o n g r e s s d u r i n q h e a r i n q s f o r a 1 9 6 8 a c t I/ t h a t t h e v i r q i n f l o w o f t h e r i v e r was b e t w e e n 1 3 . 7 and 1 4 . 0 n a f a n n u a l l y .

- - R e s e a r c h e r s a t t h e L a b o r a t o r y o f T r e e R i n q R e s e a r c h , U n i v e r s i t y o f A r i z o n a , h a v e u s e d t r e e r i n q d a t a t o r e c o n s t r u c t t h e C o l o r a d o R i v e r ' s f l o w f o r a 4 5 0 - y e a r p e r i o d . U s i n g t h i s d a t a , t h e y e s t i m a t e t h e r i v e r ' s n e a n a n n u a l f l o w t o be 1 3 . 5 n a f + .5 n a f . The t r e e r i n g s t u d i e s show t h a t t h e p e r i o d 1930 t o 1 9 7 7 i s a n o r m a l p e r i o d when v i e w e d i n t h e c o n t e x t of t h e p a s t f e w c e n t u r i e s . U s i n g t h e B u r e a u ' s h i s t o r i c a l d a t a f o r t h i s p e r i o d , t h e a v e r a q e a n n u a l v i r q i n f l o w was 1 3 . 2 n a f .

-.-- --- --- .

l / C o l o r a d o R i v e r B a s i n P r o j e c t A c t ; P u b l i c L a w 90-537, 8 2 S t a t 885 ( 1 9 6 8 ) , ( 4 3 U . S . C . 1 5 0 1 ) .

8

The B u r e a u t o l d u s t h a t w h i l e t r e e r i n g h y d r o l o q y h a s f u t u r e p o t e n t i a l , i t h a s n o t y e t b e e n p r o v e n r e l i a b l e .

SUFFICIENT WATER FOR PRESENT - BUT NOT FUTURE DEMANDS

A s d i s c u s s e d i n c h a p t e r 1, t h e Upper a n d Lower B a s i n s were a l l o c a t e d 7 . 5 n a f e a c h by t h e 1 9 2 2 c o n p a c t a n d Mexico was a l l o c a t e d 1 . 5 n a f by t h e 1 9 4 4 Mex ican W a t e r T r e a t y f o r a t o t a l a l l o c a t i o n o f 1 6 . 5 n a f . I/ Based o n n o s t o f f u t u r e v i r g i n f l o w s , t h e s e a l l o c a t i o n s s u b s t a n t i a l l y e x c e e d t h e r i v e r ' s d e p e n d a b l e w a t e r s u p p l y .

D u r i n g t h e p e r i o d 1 9 7 1 t o 1 9 7 5 , B u r e a u r e c o r d s show t h a t , i n a d d i t i o n t o t h e w a t e r b e i n q s t o r e d ( s ee a p p . I V ) a n a v e r a q e o f 1 2 . 3 n a f o f C o l o r a d o R i v e r w a t e r was u s e d f o r t h e f o l l o w i n q p u r p o s e s .

Upper Lower

i o n s

I

T y p e o f u s e asi in B a s i n Mex ico -- T o t a l

B a s i n e x p o r t s ( n o t e a ) 0 .69 4 . 6 9 - 5.38 I r r i g a t e d a g r i c u l t u r e 2 .19 1 . 5 8 - 3.77 Water t o Mexico - - 1 . 6 1 1 . 6 1 R e s e r v o i r e v a p o r a t i o n

losses 0 . 5 3 0 . 7 3 0 . 0 1 1 . 2 7 M u n i c i p a l & i n d u s t r i a l 0 . 1 2 0 . 0 9 - 0 . 2 1 W i l d l i f e a n d r e c r e a t i o n -- 0 . 0 2 0 .04 - - 2- 0 0 6

T o t a l 3 .55 -- 7 . 1 3 --- 1 . 6 2 1 2 . 3 0 - - - a / I n c l u d e s i r r i q a t i o n , m u n i c i p a l , a n d i n d u s t r i a l water. -

The B u r e a u e s t i n a t e s t h a t by 1 9 9 0 t h e Lower B a s i n S t a t e s a n d Mexico will b e u s i n g a n a v e r a q e a n n u a l 9 . 5 n a f o f main- s t r e a n w a t e r , i n c l u d i n g losses , w i t h t h e U p p e r B a s i n u s i n g 5 . 3 n a f i f p r e s e n t l y p l a n n e d d e v e l o p n e n t o c c u r s . ( S e e c h a r t , p . 11.) The Upper B a s i n ' s w a t e r u s e r a t e beyond 1 9 9 0 i s h i q h l y c o n j e c t u r a l , d e p e n d i n q l a r g e l y u p o n t h e u n c e r t a i n d e v e l o p n e n t of t h e a r e a ' s h u g e r e s e r v e s o f o i l s h a l e a n d coal .

,

l / A s - s t a t e d i n c h a p t e r 1 a n d a p p e n d i x 1, t h e 1 9 2 2 C o n p a c t , t h e B o u l d e r Canyon P r o j e c t A c t , a n d t h e 1 9 6 4 S u p r e n e C o u r t decree i n --- C a l i f o r n i a v. A r i z o n a i n d i c a t e t h a t t h e Lower B a s i n was a l l o c a t e d 7 . 5 n a f f r o m t h e C o l o r a d o R i v e r n a i n - Â £ 1 0 ~ 1 The s o u r c e o f t h e a d d i t i o n a l I naf a l l o c a t e d t o t h e Lower H a s i n is n o t c l e a r l y i d e n t i f i e d i n t h e s e d o c u n e n t s .

Although the Upper Basin S t a t e s were apportioned 7.5 maÂ a year , t h e Bureau es t imates f o r planning purposes t h a t these S t a t e s w i l l only be a b l e t o consunptively use a naximun of 5 .8 maÂ annually sometime a f t e r 2030 because t h i s i s t h e estimated anount renaininq when the downstrean conni tnents a r e nade. The Bureau considered a number of f a c t o r s i n a r r i v i n g a t the 5.8 naf es t imate including:

- T h e average annual flow would be 14.8 naf .

- - A t l e a s t 8.25 naf of water a year w i l l be de l ivered t o the Lower Basin. This amount includes the Lower Bas in ' s annual a l lotment of 7 . 5 n a f , p lus .75 naf t o meet one-half of t h e 1 .5 maÂ water commitment t o Mexico.

- T h e r e s e r v o i r s w i l l be operated s o t h a t s toraqe l e v e l s do not f a l l below t h e mininun power pool. I/

A major d i spu te e x i s t s between the Upper and Lower Basins over supplying t h e 1 .5 naf conni tnent t o Mexico. The Colorado River Compact s t a t e s t h a t any required de l ive ry of water t o Mexico s h a l l be suppl ied f i r s t f ron water su rp lus t o the bas ic apportionment from the Colorado River svs ten ( 7 . 5 raaf t o the Upper Basin, 8.5 naf t o the Lower Basin) and if the surp lus i s i n s u f f i c i e n t , t h e burden of such def ic iency s h a l l be borne equal ly by the two bas ins .

The Lower Basin S t a t e s contend t h a t t h e r e i s no surp lus and the Upper Bas in ' s share of t h e Mexican t r e a t y de l ive ry o l i g a t i o n i s one-half of the t o t a l ob l iqa t ion of 1 .5 naf p lus one-half of t h e l o s s e s incurred i n de l ive r inq t h e water f ron Lee Ferry t o the Mexican border. The Upper Basin S t a t e s bel ieve t h a t su rp lus water e x i s t s i n t h e Lower Basin and the re fo re they a r e not required t o r e l e a s e any water t o meet t h e Mexican t r e a t y ob l iga t ion .

The Bureau has s t a t e d t h a t t h e annual r e l e a s e of -75 maÂ i n add i t ion t o t h e required 7.5 naf i s not neant i n any way t o pre judice the pos i t ion of e i t h e r t h e Upper o r Lower Basin i n t e r e s t s w i t h r e spec t t o required d e l i v e r i e s a t Lee Ferry pursuant t o the "Law of the River." However, u n t i l t h i s i s s e t t l e d otherwise the use of . 7 5 naf a s a deple t ion charge t o the Upper Basiri i s s t r i c t l v f o r planninq purposes t o ensure t h a t p r o j e c t s a r e desiqned and operated on the b a s i s of the bes t poss ib l e f i r n y i e l d s of the Colorado River.

l/The lowest l e v e l of r e s e r v o i r water s to raqe a t which - power can be generated.

Upper B a s i n S t a t e o f f i c i a l s b e l i e v e t h a t t h e Upper B a s i n s h o u l d b e a l l o w e d t o d e p l e t e i n t h e r a n g e o f 6 . 3 maÂ t o 6 . 5 n a f a n n u a l l y . The p r i n c i p a l d i f f e r e n c e b e t w e e n t h e e s t i m a t e o f t h e Upper B a s i n S t a t e s o f 6 . 3 and t h e 5 . 8 maÂ e s t i m a t e d by t h e B u r e a u i s t h e . 7 5 inaf d e p l e t i o n c h a r g e t o t h e Upper B a s i n f o r p l a n n i n q p u r p o s e s .

A l t h o u q h t h e Upper B a s i n n a y n o t r e a c h t h e e s t i m a t e d 5 .8 n a f a n o u n t by t h e y e a r 2030 , a c o n p a r i s o n o f t h e B u r e a u ' s estimates o f a v e r a q e l o n q - t e r r a w a t e r s u p p l y o f a b o u t 1 4 . 8 n a f w i t h f u t u r e p r o j e c t e d d e p l e t i o n s f o r t h e t o t a l C o l o r a d o R i v e r i n d i c a t e t h a t t h e r i v e r i s a p p r o a c h i n c ; t h e p o i n t when t h e n a t u r a l water s u p p l y w i l l b e i n a d e q u a t e t o n e e t a l l t h e d e n a n d s p l a c e d o n i t . F u t u r e d e p l e t i o n s , a s e s t i m a t e d by t h e B u r e a u , a r e p r e s e n t e d i n t h e f o l l o w i n q t a b l e .

Upper B a s i n 3 . 6 1 - a / 5 . 2 9 - a / 5.50 Lower B a s i n 6 . 2 1 7 . 2 8 7 .37 Mexico 1 . 6 6 1 . 5 1 1 . 5 1 R i v e r l o s s e s

b e l o w Hoover Dam .67 -- . 7 3 -- . 7 3 --

T o t a l 1 2 . 1 5 -.-

1 4 . 8 1 .-.

1 5 . 1 1

a /Upper B a s i n o f f i c i a l s s t a t e d t h a t t h e s e d e p l e t i o n s n a y b e - o v e r s t a t e d b e c a u s e o f t h e a d m i n i s t r a t i o n ' s c u r r e n t p o s i t i o n o n f u t u r e d e v e l o p m e n t .

U s i n q a m a t h e m a t i c a l s i m u l a t i o n mode l and a s s u n i n q a n a v e r a q e a n n u a l v i r q i n f l o w of a b o u t 1 4 . 8 n a f , t h e B u r e a u h a s c o n d u c t e d s e v e r a l s t u d i e s o f how t h e C o l o r a d o R i v e r and i t s s t o r a g e r e s e r v o i r s a r e o p e r a t e d . T h e s e s t u d i e s i n v o l v e d a n a l y z i n g 1 3 d i f f e r e n t w a t e r s u p p l y s e q u e n c e s f o r t h e h i s t o r i c a l p e r i o d 1906 t o p r e s e n t a n d were m o d i f i e d t o r e f l e c t p r o j e c t e d d e p l e t i o n s i n f u t u r e y e a r s . Some of t h e e a r l i e r s t u d i e s shower! t h a t s u f f i c i e n t w a t e r would b e i n t h e r i v e r s y s t e n t o n e e t b a s i n w a t e r d e n a n d s u n t i l sometime a f t e r 1 9 8 5 when t h e C e n t r a l A r i z o n a P r o j e c t ( C A P ) i s s c h e d u l e d t o make i n i t i a l d e l i v e r i e s . A f t e r t h i s p e r i o d , t h e r i v e r w i l l p r o b a b l y n o t y i e l d e n o u q h w a t e r u n d e r n o r n a l c i r c u m s t a n c e s t o n e e t a l l b a s i n d e m a n d s , t h e Mexican t r e a t y o b l i g a t i o n s , a n d r i v e r s y s t e m l o s s e s . More r e c e n t B u r e a u s t u d i e s i n d i c a t e t h a t a s h o r t a q e o f w a t e r c o u l d o c c u r a s e a r l y a s 1 9 9 2 a n d p r o b a b l y would o c c u r p r i o r t o 2023 . However, t h e s e s t u d i e s

a l s o show t h a t p r i o r t o 1985 t h e r e is a h i g h p r o b a b i l i t y t h a t t h e r e s e r v o i r s w i l l b e n e a r or a t f u l l c a p a c i t y and t h e Bureau w i l l b e r e q u i r e d to make r e l e a s e s i n e x c e s s o f what is r e q u i r e d downstream to p r o v i d e f o r f u t u r e f l o o d s t o r a g e .

Many S t a t e and F e d e r a l o f f i c i a l s b e l i e v e t h a t s i g n i f - i c a n t s h o r t a g e s p r o b a b l y w i l l n o t o c c u r u n t i l sometime a f t e r t h e y e a r 2000. The e x a c t t i m i n g and t h e a v a i l a b i l i t y o f w a t e r t o meet a d d i t i o n a l Lower and Upper B a s i n demand w i l l depend o n t h e r a t e o f deve lopmen t i n t h e Upper B a s i n and a c t u a l r u n o f f t h a t o c c u r s i n t h e f u t u r e . Some S t a t e o f f i c i a l s b e l i e v e t h a t t h e Upper B a s i n S t a t e s w i l l d e v e l o p t h e i r water r e s o u r c e s a t a much slower r a t e t h a n t h e Bureau is p r o j e c t i n g .

A s n o t e d p r e v i o u s l y , many e x p e r t s p r o j e c t t h e f u t u r e s u p p l i e s t o b e less t h a n t h e 14.8 maÂ Bureau e s t i m a t e . I f t h e s e e s t i m a t e s a r e correct , t h e s h o r t a g e s w i l l o c c u r much s o o n e r t h a n t h e Bureau p r e d i c t s and w i l l b e more s e v e r e . Bureau o f f i c i a l s s t a t e d t h a t a n y i n i t i a l downward a d j u s t m e n t i n t h e e s t i m a t e d water s u p p l y would n o t have a n y s i g n i f i c a n t i m p a c t o n Upper B a s i n p l a n n i n g . T h i s i s b e c a u s e Upper B a s i n p l a n n e d d e v e l o p m e n t o f 5.8 maÂ is b a s e d o n a b o u t 14 maÂ r a t h e r t h a n t h e l ong - t e rm a v e r a g e v i r g i n f l o w o f 1 4 . 8 maÂ£ The a p p r o x i m a t e 1 maÂ d i f f e r e n c e c o n s i s t s m a i n l y o f v a r i a b l e h i g h f l o w s t h a t d o n o t r e c u r o n a c o n s i s t e n t enough b a s i s to be c o n s i d e r e d a p a r t o f t h e f i r m s u p p l y f o r t h e p r o j e c t s b e i n g p l a n n e d and t h e r e f o r e would be p a s s e d t o t h e Lower B a s i n a s s u r p l u s f l o w s .

However, Upper B a s i n d e v e l o p m e n t would be a f f e c t e d by f u - t u r e a v e r a g e v i r g i n f l o w o f less t h a n 1 4 maf. F o r example , a n a n n u a l f l o w o f 1 3 . 5 maÂ b a s e d o n t ree r i n g d a t a would l e a v e 5.25 maf f o r c o n s u m p t i v e u s e i n t h e Upper B a s i n , a s suming a n 8 .25 maf d e l i v e r y t o t h e Lower B a s i n . T h i s i s compared t o t h e B u r e a u ' s estimate o f 5.8 maÂ f o r Upper B a s i n c o n s u m p t i v e u s e .

The u s e o f s t o r a g e f a c i l i t i e s w i l l d e l a y t h e s h o r t a g e beyond t h e time when demand meets v i r g i n s u p p l y , b u t a t t h a t p o i n t new c o n s u m p t i v e u s e s c a n o n l y b e u n d e r t a k e n by s h i f t - i n g water away f rom t h e n - c u r r e n t u s e s , by c o n s e r v a t i o n , o r by augmen t ing t h e s u p p l y of w a t e r i n t h e r i v e r .

GROUND WATER DEVELOPMENT HAS CAUSED PROBLEMS I N SOME AREAS '

S u r f a c e w a t e r i n t h e b a s i n c a n meet most of t h e p r e s e n t demands; however , some a r e a s , m a i n l y i n A r i z o n a , h a v e r e l i ed

h e a v i l y o n q r o u n d w a t e r I/ a s a s u p p l y . One e f f e c t o f t h i s h a s b e e n t h a t s i g n i f i c a n t l y nore q r o u n d w a t e r i s t a k e n o u t t h a n i s r e p l e n i s h e d ( o v e r d r a f t i n g ) and t h e r e b y r e d u c i n q e x i s t i n g w a t e r s u p p l i e s .

The C e n t r a l A r i z o n a P r o j e c t was d e s i q n e d t o r e d u c e A r i z o n a ' s d e p e n d e n c e o n g r o u n d w a t e r by d e l i v e r i n g C o l o r a d o R i v e r w a t e r t o c e n t r a l A r i z o n a . U n f o r t u n a t e l y , t h e CAP w a t e r s u p p l y w i l l n o t b e s u f f i c i e n t t o e l i m i n a t e t h e o v e r d r a f t s . U n l e s s t h e w a t e r s u p p l y a v a i l a b l e t o CAP i s i n c r e a s e d , f a r m l a n d w i l l h a v e t o b e r e d u c e d s i q n i f i c a n t l y t o b a l a n c e w a t e r s u p p l y a n d u s e b y t h e y e a r 2 0 2 0 , a s s u m i n g a m e d i a n q r o w t h r a t e i n n o n a g r i c u l t u r a l a c t i v i t i e s . 2/ C o n s e r v a t i o n m e a s u r e s a n d s t r o n g q r o u n d w a t e r l a w s c o u l d a l s o h e l p r e d u c e t h e o v e r d r a f t s . A r i z o n a h a s t a k e n t h e f i r s t s t e p s t o w a r d a s t r o n q g r o u n d water l a w .

I n n a n y a r e a s o f t h e Upper B a s i n , t h e U.S. G e o l o g i c a l S u r v e y h a s r e p o r t e d t h a t o p p o r t u n i t i e s e x i s t t o u s e g r o u n d water more e f f e c t i v e l y a n d r e d u c e t h e e f f e c t s o f f u t u r e s h o r t a g e s b y m a n a g i n g s u r f a c e a n d g r o u n d water a s o n e t o t a l s u p p l y . Ground w a t e r s t o r e d i n a q u i f e r s d u r i n g wet p e r i o d s c o u l d b e u s e d t o s u p p l e m e n t s u r f a c e w a t e r , p a r t i c u l a r l y d u r i n g l o w - f l o w p e r i o d s .

A more d e t a i l e d d i s c u s s i o n o f q r o u n d w a t e r i s c o n t a i n e d i n a p p e n d i x 111.

I N D I A N AND FEDERAL RESERVED WATER - RIGHTS NEED TO BE QUANTIFIED AND SETTLED

C l a i m e d I n d i a n a n d F e d e r a l r e s e r v e d w a t e r r i g h t s i n t h e C o l o r a d o R i v e r B a s i n n a y a f f e c t f u t u r e w a t e r demands . How- e v e r , t h e s e r i g h t s h a v e g e n e r a l l y n o t b e e n q u a n t i f i e d o r s e t t l e d t o t h e s a t i s f a c t i o n o f t h o s e c o n c e r n e d . I n d i a n a n d F e d e r a l r e s e r v e d w a t e r r i g h t s a n d t h e d o c t r i n e o f p r i o r a p p r o - p r i a t i o n s , w h i c h i s g e n e r a l l y f o l l o w e d t o a l l o c a t e w a t e r r i g h t s i n W e s t e r n S t a t e s , r e p r e s e n t two i n c o n s i s t e n t w a t e r r i q h t s d o c t r i n e s . F o r e x a n p l e , t h e d o c t r i n e o f p r i o r a p p r o - p r i a t i o n s i s b a s e d o n w a t e r r i q h t s a c c r u i n g t o t h o s e who f i r s t p u t t h e w a t e r t o b e n e f i c i a l u s e . However , u n l i k e a p p r o p r i a t i v e w a t e r r i q h t s , I n d i a n a n d F e d e r a l r e s e r v e d r i q h t s a r e b a s e d o n

l / S u h s u r f a c e water i n c o m p l e t e l y s a t u r a t e d s p a c e s b e t w e e n - s o i l p a r t i c l e s o r r o c k s i s c o n s i d e r e d q r o u n d w a t e r .

2 / A r i z o n a S t a t e W a t e r P l a n , P h a s e 11, p r e p a r e d ! - - - A r i z o n a W a t e r C o n m i s s i o n , F e b . 1 9 7 7 .

t h e r e s e r v a t i o n a n d o w n e r s h i p o f l a n d f r o n t h e p u b l i c d o n a i n a n d a r e n o t d e p e n d e n t upon a c t u a l d i v e r s i o n a n d u s e .

S e t t l e n e n t o f t h e s e c l a i n s n a y i n v o l v e w i t h d r a w a l o f w a t e r r i g h t s f r o n p r e s e n t u s e r s , s i n c e i n n a n y c a s e s t h e w a t e r now c l a i m e d h a s b e e n a p p r o p r i a t e d by o t h e r u s e r s . C o n t i n u e d d e l a y s i n q u a n t i f y i n g a n d s e t t l i n g t h e s e c l a i n s w i l l i n c r e a s e t e n s i o n s a n d u n c e r t a i n t i e s , n a y c a u s e e c o n o m i c a n d s o c i a l d i s r u p t i o n , a n d c o u l d b l o c k f u r t h e r g r o w t h a n d d e v e l o p m e n t i n c e r t a i n a r e a s o f t h e b a s i n . By n e n o r a n d u n d a t e d J u l y 1 2 , 1 9 7 8 , t h e P r e s i d e n t d i r e c t e d t h e F e d e r a l a g e n c i e s t o i n i t i a t e e f f o r t s l e a d i n g t o q u a n t i f i c a t i o n o f I n d i a n a n d F e d e r a l r e s e r v e d r i g h t s . T h e I n d i a n a n d F e d e r a l r e s e r v e d w a t e r r i q h t s c o n t r o v e r s y i s t h e s u b j e c t o f a n o t h e r GAO r e p o r t . I/ Q u a n t i t y o f I n d i a n r e s e r v e d w a t e r r i g h t s nay b e s u b s t a n t i a l

The c o n t r o v e r s y o v e r I n d i a n r e s e r v e d w a t e r r i q h t s a n d e n t i t l e m e n t s i n t h e b a s i n i s a c u t e . Water r i q h t s r e s e r v e d o n I n d i a n r e s e r v a t i o n s were a d d r e s s e d i n 1 9 0 8 i n t h e case o f W i n t e r s v . U n i t e d S t a t e s , 207 U.S. 564 ( 1 9 0 8 ) . I n b r i e f , t h e C o u r t p o i n t e d o u t t h a t t h e A n e r i c a n I n d i a n s h a d q r a n t e d t o t h e ~ e d e r a l G o v e r n m e n t c e r t a i n r i g h t s t o v a s t l a n d h o l d i n q s w h i c h were c a p a b l e o f s u p p o r t i n g t h e i r h i s t o r i c a l way o f l i f e . I n r e t u r n f o r t h e I n d i a n s ' q i v i n y u p t h e i r r i q h t s a n d a g r e e i n g t o n o v e t o r e s e r v a t i o n s , t h e G o v e r n m e n t a s s u m e d c e r t a i n t r e a t y o b l i g a t i o n s w h i c h c o u l d n o t b e t a k e n away b y S t a t e a c t i o n s .

I t was t h e C o u r t ' s o p i n i o n t h a t r e s e r v a t i o n s i n t h e West were v a l u e l e s s w i t h o u t water t o s u p p o r t t h e way of l i f e e n v i s i o n e d by t h e t r i bes a n d t h e F e d e r a l G o v e r n m e n t . T h e C o u r t r e a l i z e d t h a t i t w o u l d n o t be p o s s i b l e f o r I n d i a n t r i b e s t o s e t t l e o n t h e r e s e r v a t i o n s a n d become p r o d u c t i v e c i t i z e n s i f t h e y were d e n i e d s u f f i c i e n t water t o f u l f i l l t h e i r r e s e r v a t i o n ' s p u r p o s e s .

A f t e r 55 y e a r s of d e b a t e o v e r t h e l e q a l p r i n c i p l e s a r t i - c u l a t e d i n t h e W i n t e r s case , t h e S u p r e m e C o u r t c o n c l u d e d i n t h e c a s e o f A r i z o n a v . C a l i f o r n i a , 3 7 3 U.S. 5 4 6 ( 1 0 6 3 ) t h a t :

f I

- T h e G o v e r n m e n t i n t e n d e d t o d e a l f a i r l y w i t h t h e I n d i a n s b y r e s e r v i n g f o r t h e n w a t e r s w i t h o u t w h i c h t h e i r l a n d s w o u l d h a v e b e e n u s e l e s s .

l / " R e s e r v e d Water R i q h t s f o r F e d e r a l a n d I n d i a n R e s e r v a t i o n s : - A Growing C o n t r o v e r s y i n Need o f R e s o l u t i o n , " ( C E D - 7 8 - " L 6 , Nov. 1 6 , 1 9 7 8 . )

--The Uni ted S t a t e s r e s e r v e d t h e w a t e r r i q h t s for t h e I n d i a n s i n t h e amount needed f o r p u r p o s e s o f t h e r e s e r v a t i o n e f f e c t i v e a s o f t h e t i n e t h e I n d i a n r e s e r v a t i o n s were c r e a t e d .

The C o u r t a l s o conc luded t h a t t h e W i n t e r s d o c t r i n e p r o v i d e d t h a t s u f f i c i e n t w a t e r was r e s e r v e d f o r b o t h t h e p r e s e n t and f u t u r e n e e d s o f t h e I n d i a n s f o r t h e p u r p o s e s o f t h e r e s e r v a - t i o n .

R e s e r v a t i o n f o r f u t u r e uses c o n s t i t u t e s a s i g n i f i c a n t d e p a r t u r e f rom Wes t e rn w a t e r l a w , which a p p r o p r i a t e d w a t e r t o t h o s e who f i r s t p u t i t t o b e n e f i c i a l u s e r a t h e r t h a n t o t h o s e who owned t h e l a n d . T h i s d e p a r t u r e h a s caused c o n s i d e r a b l e c o n s t e r n a t i o n amonq and o p p o s i t i o n f rom t h e S t a t e s and non- Ind ian w a t e r users. Because t h e r e i s no w e l l - d e f i n e d n e a s u r e o f t h e amount o f w a t e r r e s e r v e d f o r I n d i a n and F e d e r a l uses and b e c a u s e t h e s e r i g h t s have n o t been i n v e n t o r i e d and q u a n t i f i e d , t h e S t a t e s and non- Ind ian w a t e r u s e r s d o n o t know how much w a t e r r e m a i n s a v a i l a b l e f o r a p p r o p r i a t i v e use.

Q u a n t i f i c a t i o n o f I n d i a n r e s e r v e d w a t e r r i g h t s r a i s e s many c o n t r o v e r s i a l issues. Fo r example , c e r t a i n I n d i a n a t t o r n e y s have conc luded t h a t a n y q u a n t i f i c a t i o n o f I n d i a n w a t e r r i g h t s m u s t be f l e x i b l e enough t o accommodate f u t u r e w a t e r u s e s n e c e s s a r y f o r economic deve lopmen t o f I n d i a n r e s e r v a t i o n s . S t a t e a t t o r n e y s and o f f i c i a l s , o n t h e o t h e r hand , f e e l t h a t I n d i a n w a t e r r i q h t s s h o u l d b e q u a n t i f i e d o n t h e b a s i s o f u s e s r e a s o n a b l y f o r e s e e n a t t h e time t h e r e s e r v a t i o n was e s t a b l i s h e d . O t h e r w i s e , t h e y a r g u e t h a t t h e n a q n i t u d e o f t h e w a t e r r i q h t s r e m a i n s open ended and e v e r i n c r e a s i n g .

S t a t e o f f i c i a l s a r e a l s o c o n c e r n e d t h a t t h e r e s e r v a - t i o n d o c t r i n e d o e s n o t p r o v i d e c o n p e n s a t i o n t o e x i s t i n g w a t e r u s e r s who may b e a d v e r s e l y a f f e c t e d by I n d i a n r e s e r v e d w a t e r r i q h t s . These o f f i c i a l s b e l i e v e t h a t a n y s o l u t i o n t o t h e p rob lem s h o u l d i n c l u d e F e d e r a l compensa t i on t o e x i s t i n g w a t e r r i q h t s h o l d e r s who l o s e t h e i r r i g h t s b e c a u s e o f t h i s d o c t r i n e .

The N a t i o n a l Water Conmiss ion made a s i m i l a r reconmenda- t i o n i n i t s 1 9 7 3 r e p o r t "Water Po1i .cd.e~ F o r t h e F u t u r e . " The r e p o r t recommended t h a t t h e Un-ited S t a t e s e i t h e r p r o v i d e a n a l t e r n a t i v e w a t e r s u p p l y t o non - Ind i an u s e r s o r , i f t h i s p r o v e s i n f e a s i b l e , compensa te p r e v i o u s u s e r s f o r impa i rmen t o f t h e i r r i g h t s i n i t i a t e d p r i o r t o t h e 1963 d e c i s i o n i n ~ r i z o n a v. C a l i f o r n i a . The r e p o r t recommends t h e l a t t e r i f t h e p r e v i o u s u s e r s had no n o t i c e o f t h e I n d i a n r i g h t s a t t h e

t i n e they commenced developnent o r i f they d id not r e a l i z e supp l i e s were inadequate t o se rve both Indian and non-Indian users .

J u s t i c e Departnent o f f i c i a l s conversely be l ieve t h a t t h e Federal Governnent should not pay f o r r i q h t s i t a l ready owns. One S t a t e o f f i c i a l s a id t h a t t he t r a n s f e r of water f ron e x i s t i n g users t o s a t i s f y Indian claims would des t roy the investnents nade by cu r ren t water u se r s . He be l ieves a nore l o g i c a l approach n i g h t be t o compensate t h e Indians r a t h e r than e x i s t i n g users f o r the l o s s of water r i q h t s .

Several Indian t r i b e s i n t h e basin a r e c l a i n i n g Winters r i q h t s t o l a r g e q u a n t i t i e s of Colorado River water o r a r e claiminq Colorado River water t o s a t i s f y c la ined Winters r i g h t s i n o the r s t r e a n s . These t r i b e s contend t h a t t h e Federal Government f a i l e d t o p r o t e c t t h e i r water r i q h t s and has allowed the basin S t a t e s t o a l l o c a t e t h e i r sha re of t h e water t o o t h e r users . Examples of Indian -- Winters doc t r ine claims i n t he basin a r e l i s t e d i n appendix V I I .

The amount of Federal reserved water r i g h t c l a i n s ----- is uncer ta in

The r e se rva t ion d o c t r i n e appl ied i n t he -- Winters case was thought t o be a s p e c i a l r u l e of Indian law a s l a t e a s 1963 when, i n Arizona --- v. --- C a l i f o r n i a , - 373 U . S . 546 (1963) , t h e Supreme Court r ea f f i rned t h e v i a b i l i t y of t h e r e se rva t ion doc t r ine and s p e c i f i c a l l y appl ied i t t o Federal r e se rva t ions . T h e Court upheld U.S. c l a i n s t o Colorado River water and sone of i t s t r i b u t a r i e s f o r use on non-Indian Federal r e se rva t ions .

National f o r e s t s , na t iona l parks , Federal rangelands, m i l i t a r y es tab l i shments , and f i s h and w i l d l i f e refuqes a r e examples of Federal r e se rva t ions t o which t h i s d o c t r i n e app l i e s . These Federal r e se rva t ions and f e d e r a l l y owned lands comprise t h e major i ty of t h e landholdinqs i n t h e Colorado River Basin ( 6 0 percent i n the Upper Basin and 52 percent i n the Lower Bas in) .

Depending on seve ra l f a c t o r s , t h e anount of reserved water f o r Federal lands could vary s i g n i f i c a n t l y . The r e se rva t ion doc t r ine reserves t h a t anount of appurtenant , then-unappropriated water needed t o acconpl ish t h e purpose of the reserva t ion . The a'nount of Federal reserved water f o r consumptive and nonconsunptive uses has not been iden - t i f i e d . Althouqh about 61 percent of a l l su r face water i n t h e 11 Western S t a t e s o r i g i n a t e s on Federal r e se rva t ions , the Public Land Law Review Comnission's 1967 f i n a l r epor t indicated t h a t l e s s than 1 percent of a l l su r face water used i n these S t a t e s i s used on Federal l ands .

The water r i g h t s f o r t h e s e n o n - I n d i a n r e s e r v a t i o n s , f o r t h e most p a r t , h a v e n o t b e e n q u a n t i f i e d . T h e r e a r e n a n y u n c e r t a i n t i e s r e l a t e d t o t h i s d o c t r i n e . F o r e x a n p l e , n a y t h e n a t u r e a n d p l a c e o f r e s e r v e d w a t e r u s e o n t h e r e s e r v a t i o n b e c h a n g e d a n d , i f so, a r e t h e r e a n y l i m i t a t i o n s a p p l i c a b l e ? A n o t h e r c o n c e r n i s w h a t r e s e r v e d r i g h t s , i f a n y , a t t a c h t o

- - l a n d s a c q u i r e d f r o n p r i v a t e s o u r c e s t h a t a r e w i t h i n t h e c o n f i n e s o f n a t i o n a l p a r k s a n d f o r e s t s or

- - t h e n a v a l o i l s h a l e r e s e r v e s f o r p u r p o s e s o f o i l s h a l e d e v e l o p m e n t ?

S t a t e o f f i c i a l s i n b o t h t h e Upper a n d Lower B a s i n s h a v e s t a t e d t h a t w a t e r r e q u i r e m e n t s f o r n o n - I n d i a n F e d e r a l r e s e r v a t i o n s w i l l n o t b e s i g n i f i c a n t . One o f f i c i a l b e l i e v e d t h a t t h e F e d e r a l c l a i m s w i l l b e s i g n i f i c a n t , b u t n o t u p h e l d .

CRITERIA ARE NEEDED FOR OPERATING STORAGE RESERVOIRS DURING SHORTAGES -- ---

With w a t e r s h o r t a g e s a c e r t a i n t y i n t h e f u t u r e , p r o c e - d u r e s m u s t b e d e c i d e d upon t o m i n i m i z e t h e i n p a c t . A l t h o u q h r e s e r v o i r s c a n p r o v i d e a s o u r c e o f w a t e r d u r i n q s h o r t a q e s , p r o c e d u r e s f o r o p e r a t i n g t h e n i n e r e s e r v o i r s i n t h e b a s i n a r e i n c o m p l e t e . F i r s t , t h e c o n d i t i o n s t h a t m u s t e x i s t t o d e c l a r e a water s h o r t a g e h a v e n o t b e e n c l e a r l y i d e n t i f i e d . I n a d d i t i o n , t h e a n o u n t o f water t h a t s h o u l d r e m a i n i n t h e Upper B a s i n r e s e r v o i r s f o r u s e i n s h o r t a g e s h a s n o t b e e n d e t e r m i n e d , n o r h a s a n a q r e e n e n t b e e n made o n how much water t o release t o t h e Lower B a s i n a n d Mex ico i f a s h o r t a q e o c c u r s . T h i s l a c k o f p r o c e d u r e s c r e a t e s u n c e r t a i n t y a s t o how t h e r e s e r v o i r s w i l l b e o p e r a t e d d u r i n q a w a t e r s h o r t a q e , a n d t h u s how much w a t e r w i l l b e a v a i l a b l e f o r u s e d u r i n q a s h o r t a q e . B u r e a u o f f i c i a l s s a i d t h a t t h e s e d e f i c i e n c i e s h a v e n o t b e e n c o r r e c t e d b e c a u s e t h e s e v e n b a s i n S t a t e s c a n n o t a q r e e o n how t o h a n d l e t h e n a n d d o n o t b e l i e v e t h a t a g r e e m e n t n e e d s t o b e r e a c h e d a t t h i s t i n e .

The S e c r e t a r y o f t h e I n t e r i o r i n 1 9 7 0 p r o n u l q a t e d " C r i t e r i a f o r C o o r d i n a t e d Long-Range O p e r a t i o n o f C o l o r a d o ~ i v e r R e s e r v o i r s . " The c r i t e r i a a r e t o be u s e d t o d e t e r m i n e t h e amoun t o f w a t e r t o b e ( 1 ) r e l e a s e d f r o m Lake P o w e l l a n d Lake Mead t o t h e L o w e r B a s i n a n d M e x i c o a n d ( 2 ) s t o r e d i n t h e Upper B a s i n r e s e r v o i r s t o p r o t e c t t h e Upper B a s i n ' s u s e r e q u i r e m e n t s .

However, i n e s t a b l i s h i n q t h e o p e r a t i n q c r i t e r i a , t h e S e c r e t a r y d i d n o t f o r m a l l y q u a n t i f y t h e a n o u n t o f Upper B a s i n s t o r a q e t h a t s h o u l d b e m a i n t a i n e d f o r f u t u r e p e r i o d s . T h i s

amount i s the s torage considered s u f f i c i e n t t o n e e t f u t u r e r e l e a s e s t o the Lower Bas in without irapairinq the Upper Bas in ' s consimptive uses. Also, t he c r i t e r i a s t a t e t h a t a f t e r the Central Arizona P ro jec t becones ope ra t iona l , the Secre ta ry s h a l l determine when water supply i s i n s u f f i c i e n t t o s a t i s f y annual consumptive use requirements i n t he Lower Basin. However, they d o not s t a t e what water supply condi t ions m u s t e x i s t i n t h e r i v e r and s to rage r e s e r v o i r s t h a t would cause the Secretary t o d e c l a r e a water shor taqe , nor do they s t a t e how t h e Secre ta ry would make r e l e a s e s from Lake Mead during a water shortage.

These condi t ions have never been formal ly s t a t e d o r quan t i f i ed because t h e Bureau has never been ab le t o reach an agreement on then w i t h t he basin S t a t e s . The Upper and Lower Basin S t a t e s d i sag ree over t h e amount of Upper Basin s torage t o be re ta ined and t h e i r r e spec t ive o b l i g a t i o n s i n supplying t h e Mexican t r e a t y a l l o c a t i o n . (See p. 1 0 . )

The Bureau n e t w i t h t h e seven bas in S t a t e s i n June 1 9 7 8 t o i n s t i g a t e s t u d i e s addressing r e s e r v o i r opera t ing c r i t e r i a and o the r i s sues , but t he S t a t e s sa id t h a t such s t u d i e s would be p rena tu re . a t t h a t t i n e . For exanple, Arizona be l ieves t h a t a shortage w i l l not occur f o r nany years and t h a t more s p e c i f i c operat ing c r i t e r i a can b e s t be decided c l o s e r t o the time the shortages occur , a s dec i s ions can be based on condi t ions p e r t i n e n t a t t h a t t i n e .

Since Bureau o f f i c i a l s could not reach an aqreenent w i t h t h e seven bas in S t a t e s , they be l ieve t h e S t a t e s would bring s u i t i f s p e c i f i c c r i t e r i a a r e s e t and t h a t i t i s b e t t e r t o renain f l e x i b l e on these mat te rs . These o f f i c i a l s p r e f e r wait ing u n t i l f i r n operat inq c r i t e r i a can be agreed upon by t h e seven bas in S t a t e s o r u n t i l a water shor tage n e c e s s i t a t e s an agreement. If l e g a l ac t ion i s brought a f t e r a shor tage is imminent, however, mi t iga t ing a c t i o n s nay be delayed while the s u i t i s pending.

I f t h e Secre ta ry wai t s u n t i l a shortage occurs , he and the S t a t e water o f f i c i a l s nay be forced t o make dec i s ions on a c r i s i s bas i s t h a t a r e not i n t h e bes t i n t e r e s t s of t h e S t a t e s , Nation, o r basin a s a whole. Water o f f i c i a l s respons- i b l e f o r planning s o l u t i o n s t o f u t u r e shor tages need t o know how nuch water w i l l be a v a i l a b l e f o r use i n both sub-basins and the S t a t e s s o proper dec i s ions can be nade. I f p lans a r e nade without information on t h e opera t inq c r i t e r i a , p r o j e c t s nay be b u i l t t h a t a r e not needed o r t h a t w i l l never have s u f f i c i e n t water t o meet p r o j e c t purposes. Water use r s a l s o need t o know what t h e operat inq c r i t e r i a w i l l be, s o t h e i r p lans can be based on r e l i a b l e water supp l i e s . Very

c o s t l y a c t i o n s may b e needed d u r i n g a c r i s i s , a s h a s o c c u r r e d i n o t h e r p a r t s o f t h e West, t h a t c o u l d be avo ided i f t h e o p e r a t i n g c r i t e r i a were known i n advance .

FURTHER EFFORTS ARE NEEDED TO SALVAGE, CONSERVE, AND AUGMENT THE WATER SUPPLY

The C o n g r e s s , t h e Bureau , and t h e S t a t e s have s u g g e s t e d and /or p u r s u e d s o l u t i o n s t o t h e p r e d i c t e d w a t e r s h o r t a g e i n t h e b a s i n . Such s o l u t i o n s have i n v o l v e d w a t e r s a l v a g e , c o n s e r v a t i o n , and v a r i o u s a u g m e n t a t i o n methods. O v e r a l l , v e r y l i t t l e p r o g r e s s h a s been made t h r o u g h t h e s e p rograms t o d e a l w i t h t h e p r e d i c t e d s h o r t a g e s . Al though some p rog rams , s u c h a s w a t e r s a l v a g e , h a v e had l i m i t e d s u c c e s s , more n e e d s t o b e done . The a r e a s where o p p o r t u n i t i e s ex i s t to i n c r e a s e o r u s e t h e a v a i l a b l e w a t e r s u p p l y b e t t e r a r e summarized below and d i s c u s s e d i n d e t a i l i n append ix V.

Water s a l v a q e proqram h a s had l i m i t e d s u c c e s s

The Bureau u n d e r t o o k programs f o r w a t e r s a l v a g e I/ and g round w a t e r r e c o v e r y a l o n g and a d j a c e n t t o t h e c o l o r a d o R i v e r and was a b l e t o s a l v a g e a b o u t 569,000 a c r e - f e e t a n n u a l l y by

- -d r edg ing t h e r i v e r c h a n n e l ,

--removing v e g e t a t i o n a l o n g t h e r i v e r bank ,

- - c o n s t r u c t i n g S e n a t o r Wash Dam t o improve c o n t r o l o f t h e f l o w o f w a t e r t o Mexico by r e d u c i n g e x c e s s d e l i v e r i e s , and

- - i n s t a l l i n g wel ls n e a r t h e b o r d e r t o r e d u c e t h e f l o w o f g round w a t e r t o Mexico.

The Bureau e s t i m a t e s t h a t a n o t h e r 125 ,000 a c r e - f e e t o f w a t e r w i l l b e s a l v a g e d a n n u a l l y by t h e c u r r e n t program o f i n s t a l l i n g a d d i t i o n a l w e l l s a l o n g t h e Mexican b o r d e r . Bureau o f f i c i a l s a l s o e s t i m a t e t h a t 191 ,000 a c r e - f e e t of w a t e r c o u l d b e s a l v a g e d a n n u a l l y t h r o u g h a d d i t i o n a l d r e d g i n g and v e g e t a t i o n removal p rograms . However, t h e Bureau h a s s t o p p e d p u r s u i n g t h e d r e d g i n g program and none i s p l a n n e d f o r t h e f u t u r e b e c a u s e o f e n v i r o n m e n t a l , f i s h , and w i l d l i f e c o n c e r n s .

l /Water s a l v a g e is s a v i n g w a t e r f o r p r o d u c t i v e u s e t h a t - n o r m a l l y would b e l o s t .

In response t o our d r a f t r e p o r t , Bureau o f f i c i a l s from the Lower Basin s t a t e d t h a t i n an e f f o r t t o salvaqe add i t iona l water, the Bureau has entered i n t o a con t rac t w i t h Arizona S t a t e Univers i ty t o perform research on rep lac ing e x i s t i n q v e g e t a t i o n ~ n a i n l y s a l t c e d a r ~ q r o w i n q alonq t h e r i v e r with vege ta t ion t h a t would improve t h e environnent f o r t h e wild- l i f e while consuninq s i q n i f i c a n t l y l e s s water.

Conservation measures could reduce the inpac t of the shortage -- -- -

Conservation p r a c t i c e s have not reached t h e i r f u l l p o t e n t i a l i n t h e Colorado River Basin. Conservation e f f o r t s i n the basin have been r e l a t e d pr imar i ly t o i r r i g a t i o n , involving onfarn iraprovenents, reducing l o s s e s i n t h e water de l ive ry system, and con t ro l l ing the amount of water used on crops. These e f f o r t s nay de lay t h e water shortage. Bureau and S t a t e o f f i c i a l s s t a t e d , however, t h a t conserva- t i o n along t h e na in stem of t h e Colorado River w i l l have l i t t l e inpact on conservinq the water supply.

Water conservat ion nay reduce t h e amount of water consuned by nonagr icu l tura l veqe ta t ion , flowinq i n t o deep underground a q u i f e r s f ron which punpinq nay be economically impract icable , o r evaporatinq i n t o the atnosphere. EPA o f f i c i a l s ( i n a r ecen t r e p o r t ) pointed o u t t h a t a s t ronq basinwide conservat ion proqran nay be the nos t cos t - e f f ec t ive method of dea l inq w i t h s a l i n i t y .

In response t o p a s t reconnendations of GAO I/ and o t h e r s , t h e Bureau i s inves t iga t inq ways t o nake i r r i g a t i o n nore e f f i c i e n t . Opposition e x i s t s , however, t o sone conservat ion measures because of t h e i r c o s t s and t h e l ack of incent ives t o conserve. In add i t ion , s eve ra l o f f i c i a l s from t h e Federal Government and basin S t a t e s be l ieve t h a t t h e r e a r e few oppor tun i t i e s t o conserve water i n t he basin . T h i s i s because gene ra l ly water conservat ion i s success fu l only i n a r eas which a r e o f f t he Colorado's na ins t r ean and t h e r e a r e few such a r e a s i n t h e bas in . On t h e n a i n s t r e a n , they contend the major i ty of water wasted by ine f f i c i ency r e t u r n s t o the r i v e r f o r reuse.

.[/"Better Federal Coordination Needed t o Pronote More E f f i c i e n t - Farm I r r i g a t i o n , " RED-76 -116 , June 2 2 , 1976. "More and Be t t e r Uses Could Be Made of B i l l i o n s of Gallons of Water by Improving I r r i g a t i o n Delivery Systens ," CRD-77-177, September 2 , 1977.

Effo r t s t o increase the Colorado R ive r ' s water have -- - -- not solved the shortage problen -- -- .-- -.- -- --- ---

Water salvaqe and conservation prograns can only de lay , not prevent , water shortages f ron occurrinq i n t h e Colorado ~ i v e r Basin. Auqnentinq the flow of the r i v e r seens t o be t h e bes t nethod of avoidinq the predicted shortage. However, r e s u l t s have not been very nronis inq .

Methods a v a i l a b l e t o auqnent the water supply include weather n o d i f i c a t i o n , vegetat ion nanaaenent, desa l t inq yeothernal b r ines and sea water , and importation of water f ron o the r r i v e r basins . However, only p re l in ina ry inves- t i q a t i o n s of these techniques have been nade--they qenera l lv have not been proven. Environnental, s o c i a l , p o l i t i c a l , o r l e g a l c o n s t r a i n t s w i l l have t o be overcone f o r each of these techniques. The c o s t s of obtaininq water f ron these sources a r e est imated t o range from $ 2 t o over $1500 an acre- foot , dependinq on the technique used.

Weather modification has p o t e n t i a l b u t has not been c r o v G

Although the outcome of e x i s t i n q weather nod i f i ca t ion p r o j e c t s i s not c l e a r , t h e Bureau and National Weather Modifications Advisory Board be l ieve t h e r e i s s t rong evidence t h a t p r e c i p i t a t i o n i n t h e bas in can be increased s i q n i f i c a n t l v . The Bureau's proqran has shown t h a t t he '

process of cloud seeding i s nore complex than o r i g i n a l l y thought, but the Bureau be l ieves i t i s s t i l l t echn ica l ly and econonical ly f e a s i b l e . They e s t ima te t h a t s t r e a n flow i n the basin could be increased by about 1 . 6 naf annual ly , a t a c o s t of about $ 3 an acre- foot .

Vegetation nanaqement could save ---- ---.- 1.5 -- nay, a year

t P re l in inary e s t i n a t e s by t h e U. S. Forest Service

Extension a t Arizona S t a t e Univers i ty i n d i c a t e t h a t t he water yieltl can he auqnented by 1 . 5 naf a year throuqh vegetat ion nanaqenent. This technique involves chanqinq harvest p a t t e r n s i n connercial f o r e s t s t o p e r n i t increased snowpacks and thereby increase water runoff and s t reanflow. The procedure i s e s t i n a t e t l t o c o s t f ron $ 2 t o over $50 per acre- foot , clepenclinq on l o c a t i o n , and has not been proven o n a l a rqe s c a l e .

Desalination has g r e a t p o t e n t i a l -- but is c o s t l y -

have Techniques of d e s a l t i n g geothermal b r ines and seawater been demonstrated and proven, h u t t o d a t e they a r e too

expensive t o use i n increasing the h a s i n ' s usable water supply. For exariple, t he Bureau's program t o d e s a l i n a t e qeothermal water f ron r e s e r v o i r s i n t he Imperial Valley i n Ca l i fo rn ia has demonstrated t h a t expensive f r e s h water can be produced. The estimated c o s t s vary f ron $1,200 t o $1,500 per acre-foot f o r producing 50,000 acre- fee t of f r e s h water. Because of these high c o s t s and low water y i e l d s , t h e Bureau has terminated i t s geothernal i nves t iqa t ions i n the I n p e r i a l Valley but i s s t i l l inves t iqa t ing o the r poss ib l e loca t ions i n t h e basin .

x o r t i n g water i n t o the basin a not be poss ib le

Inportinq su rp lus water f ron a r e a s ou t s ide the Colorado River Basin nay be t echn ica l ly poss ib l e , b u t not economically, s o c i a l l y , o r p o l i t i c a l l y f e a s i b l e . Although t h i s s o l u t i o n could so lve t h e b a s i n ' s supply problems f o r years t o cone, the Bureau has not s tudied the prospects of i n ~ o r t i n q water f ron t h e Columbia River Basin because of a 10-year nora tor iun on such s t u d i e s i n the 1968 Colorado River Basin Act. The moratorium was r ecen t ly extended another 1 0 years i n t h e Bureau of Reclanation Safe ty of Dans Act. A n i n t e r e s t i n g s i d e l i g h t i s t h a t s eve ra l S t a t e s export po r t ions of t h e i r a l loca ted water from the basin .

A controversy nay develop over t h e r i q h t s t o the water produced under an auqnentation program. Sone S t a t e repre- s e n t a t i v e s be l ieve t h a t any increased runoff r e s u l t i n q f ron weather modif icat ion, veqe ta t ion nanaqenent , o r water salvaqe w i l l accrue t o the S t a t e s and not t o the Federal Governnent. I f t h i s i s t r u e , any water produced a s p a r t of t h e auqnenta- t i o n progran could not be used t o s a t i s f y t h e na t iona l ob l iga t ion t o uee t t he conni tnent t o Mexico and h e l p nee t any demands and connitrients f o r a d d i t i o n a l water i n the bas in , a s s t a t e d i n t he 1968 Colorado River Basin Pro jec t Act. (See app. V , p . 75 . ) ,

CONCLUSIONS -

The Bureau es t imates a water shortaqe will occur i n t h e basin around 2020; y e t t h i s e s t ima te could be o p t i n i s t i c . Despite the a s y e t unanswered ques t ions o n s e v e r i t y a n d t i n i n q of t h e water shor taqe , nuch could be clone t o clela17

o r a l l e v i a t e i t s adverse inpact . Standardized water f a c i l i t y , opera t iny procedures t o be used durinq per iods of shortaqe, add i t iona l e f f o r t s t o conserve a v a i l a b l e water, and auqnenta- t i o n of e x i s t i n q supp l i e s would a l l help.

The anount of water which w i l l be ava i l ab le durinq an average year i s of c r u c i a l inportance t o t h e basin. An over ly o p t i n i s t i c es t imate w i l l lead t o a gradual deple t ion

f " - of t h e s to red water and eventua l ly r equ i re ces sa t ion of d e l i v e r i e s t o some use r s , while a pess imis t i c e s t i n a t e w i l l r e s u l t i n l e s s than optinun developnent of t h e basin . We recoqnize t h a t exac t p red ic t ions of t h e anount of water i n t h e bas in a r e impossible t o make, and f o r t h a t reason we tend t o be l ieve the bes t es t imate would tie based on a c t u a l netered flows r a t h e r than on t h e l e s s p r e c i s e e s t ima tes of water a v a i l a b l e i n years p a s t . Because t h e netered flow da ta i n d i c a t e s an average annual flow of about 13.7 naf--an anount s i g n i f i c a n t l y l e s s than the 14.8 naf f i q u r e the Bureau i s using--we be l ieve i t s es t imate i s very o p t i m i s t i c .

While the Bureau recognizes t h a t a water shortaqe could be much more severe than p red ic t ed , most of i t s p lans and pro- qrams a r e based on t h i s o p t i n i s t i c p red ic t ion . In our op in ion , because t h e e s t i n a t e i s ex t r ene ly c r u c i a l , a l l reasonably r e l i a b l e es t imates should be considered durinq t h e planning process t o de te rn ine t h e e f f e c t t h e s u p p l y v a r i a t i o n ( inc ludinq reserved water f o r Indian and Federal l ands ) would have on s tudy r e s u l t s . We be l i eve t h i s would provide a b e t t e r b a s i s f o r nanaqinq t h e b a s i n ' s water resource a n d al low f o r poss ib l e continqency planning where keened necessary. When d e a l i n q v i t h a resource as inpor t an t a s water, s u c h a n a l y s e s s h o u l d h e nanclatory.

Since everyone aqrees t h a t a water shor taqe is g o i n q t o occur a t some f u t u r e t i n e , we be l i eve i t i s only reasonable t o have an e s t ab l i shed plan of how t h e water f a c i l i t i e s w i l l be operated durinq a shortaqe. Water use r s need t o know how the r e s e r v o i r w i l l opera te durinq a shortage so t h a t they w i l l know t h e inpac t of t h e shor taqe on t h e i r water d e l i v e r i e s and e s t a b l i s h t h e i r own contingency p lans . A t a n ininun, they need t o know what t h e c r i t e r i a a r e f o r dec la r inq a shor taqe , how much water w i l l be re leased diirinq the shor taqe , a t what l e v e l s t h e r e s e r v o i r s t r i l l be na in ta ined , and how nuch water each basin mist provide fo r the Mexican water t r e a t y corariitnent.

We be l ieve t h a t i n any a r e a of inpendinq water shor tage , naxinun e f f o r t should he made t o conserve and auqnent t h e e x i s t i n q water supp l i e s . Yet some of t h e Bureau's proqrans f o r salvage and auqnentation have been canceled o r have had U n i t e d success due t o environnental cons ide ra t ion , a n d many of i t s conservat ion proarans a r e f a i l i n q because of l e q a l

and e c o n o n i c c o n s t r a i n t s . I n o u r o p i n i o n , t h e F e d e r a l , S t a t e , a n d l o c a l w a t e r a g e n c i e s a r e n o t d o i n q e n o u q h t o r e s o l v e t h e i s s u e s s u r r o u n d i n q w a t e r a u q n e n t a t i o n ani l c o n s e r v a t i o n . W e b e l i e v e a d d i t i o n a l s t u d y a n d r e s e a r c h s h o u l d be c o n d u c t e d i n t h e s e a r e a s .

RECOMMENDATIONS TO THE SECRETARY - - .- OF THE INTERIOR ---

We r e c o n n e n d t h a t t h e S e c r e t a r y of t h e I n t e r i o r d i r e c t t h e B u r e a . ~ .to deve lop a- ser ies o f water n a n a q e n e n t p l a n s w h i c h refljs.ct v a r i o u s s u p p l y es t ina tes a n d p r e s e n t a n u n b e r o f a l t e r - n a t i v e a c t i o n s . We r e c o n n e n d t h a t t h e s e p l a n s b e c o o r d i n a t e d w i t h a l l t h e b a s i n ' s w a t e r n a n a q e r s - The B u r e a u a c o u l d t h e n b e b e t t e r p r e p a r e d f o r t h e p r e d i c t e d s h o r t a g e s i n t h e e v e n t t h a t t h e l e s s o p t i m i s t i c e s t i n a t e s a r e c o r r e c t .

W e a l s o recommend t h a t t h e S e c r e t a r y a n e n d r e s e r v o i r o p e r a t i n g criteria, by s t a t i n g (1) t h e c o n d i t i b k s u n d e r w h i c h h e w i l l d e c l a r e a water s u p p l y s h o r t a q e , ( 2 ) t h e a n o u n t s t o b e r e l e a s e d d n r i n q a s h o r t a q e , ( 3 ) t h e r e s e r v o i r s t o r a q e l e v e l s t o b e n a i n t a i n e d i n l o w - f l o w y e a r s , a n d ( 4 ) t h e a n o u n t o f w a t e r e a c h s u b b a s i n n u s t p r o v i d e f o r t h e M e x i c a n w a t e r t r e a t y c o n n i t n e n t .

I n a d d i t i o n , we reconnend t h a t t h e S e c r e t a r y of t h e I n t e r i o r d i r e c t t h e B u r e a u t o d e v e l o p a c o n p r e h e n s i v e p l a n s p e c i f y i n g t h e c o n s e r v a t i o n , w a t e r s a l v a g e , and a n q n e n t a t i o n t e c h n i q u e s t h a t w i l l b e u s e d t o p r e v e n t o r n i n i n i z e t h e a d v e r s e e f f e c t s o f s h o r t a q e s . T h i s p l a n s h o u l d i d e n t i f y f a c t o r s t h a t w i l l i n t e r f e r e w i t h i n p l e n e n t i n g t h e p l a n a n d a d d r e s s how t h e y w i l l be r e s o l v e d .

AGENCY COMMENTS AND OUR EVALUATION

The D e p a r t n e n t o f I n t e r i o r d i s a q r e e s t h a t t h e B u r e a u i s u s i n q a n o v e r l y o p t i m i s t i c e s t i n a t e of w a t e r s u p p l y i n t h e b a s i n . I n d i s c u s s i n q o u r d r a f t r e p o r t , t h e Bureau p o i n t e d o u t t h a t it a n a l y z e d n o s t o f t h e a v a i l a b l e data b e f o r e d e c i d i n q t o u s e t h e 1906-1977 t i n e f r a n e a s t h e b a s i s o f i t s e s t i n a t e . T h e B u r e a u b e l i e v e s t h a t e s t i n a t e is t h e m o s t r e a s o n a b l e e s t i m a t e o f a v a i l a b l e water i n t h e b a s i n .

We r e c o g n i z e t h a t a n y s t a t e n e n t c o n c e r q i n q t h e a n o u n t of w a t e r a v a i l a b l e i n t h e Colorado R i v e r B a s i n , r e g a r d l e s s of how it is d e r i v e d , w i l l b e n o t h i n g nore t h a n a n e s t i n a t e . However , b e c a u s e o f t h e s i g n i f i c a n t a d v e r s e s o c i a l a n d e c o n o n i c i n p a c t t h a t w i l l r e s u l t when t h e B a s i n ' s d e v e l o p n e n t e x c e e d s i t s l o n q - term w a t e r s u p p l y , w e c o n t i n u e t o b e l i e v e p l a n s f o r f u t u r e d e v e l o p m e n t a n d u s e of w a t e r s h o u l d c o n s i d e r t h e va ry inc r p r o j e c t i o n s o f t h e a n o u n t of water t h a t w i l l b e a v a i l a b l e .

CHAPTER 3

CURRENT SALINITY CONTROL PROGRAM -- MAY NOT BE COST EFFECTIVE IN ACHIEVING -

D E S I R E D RESULT

A s Colorado River Basin waters a r e increasincrly put t o use and consuned, t h e s a l i n i t y - I/ of t h e renaininq r i v e r water i s expected t o increase . Althouqh es t imates of t he e x t e n t of danage vary widely, t h e Bureau of Reclanation fore- sees economic l o s s e s t o a g r i c u l t u r e and nunic ipa l and indiis- t r i a l u se r s of t he water due t o increased saliniaty.

The c u r r e n t proqran f o r c o n t r o l l i n g s a l i n i t y i n the basin p r i n c i p a l l y includes s e t t i n g s a l i n i t y s tandards f o r the basin and poss ib ly construct inq 17 s a l i n i t y con t ro l p r o j e c t s . However, i t appears t h i s program w i l l not achieve i t s des i red ob jec t ives because

- t h e 4 p r o j e c t s which have been authorized f o r construc- t i o n nay not be economically o r t e c h n i c a l l y f e a s i b l e ;

--sone of t h e 1 3 p r o j e c t s , which have not y e t been authorized f o r cons t ruc t ion , appear t o have l imi ted p o t e n t i a l and a r e not beinq s e r i o u s l y considered; and

- t h e s a l i n i t y s tandards t h a t have been s e t nay not be net when the r i v e r ' s water supply is f u l l y developed.

I n s p i t e of t h i s knowledge, no s p e c i f i c loner-range p lans a r e beinq considered t o con t ro l s a l i n i t y i n t he basin a f t e r 1990. Althouqh sone a d d i t i o n a l neasures a r e beinq s t u d i e d , t h e i r i npac t s on s a l i n i t y reduct ion a r e not known.

In add i t ion t o t h e proqran t o con t ro l s a l i n i t y i n t h e bas in , neasures a r e underway t h a t a r e intended t o decrease t h e s a l i n i t y of t h e water qoinq t o Mexico. In 1974, s eve ra l neasures t o con t ro l the s a l i n i t y of water qoinq t o Mexico were authorized by t h e Conqress. Their c o s t has r i s e n sharp ly , and nore econonical a l t e r n a t i v e s o l u t i o n s should be considered.

I / S a l i n i t y , i n f reshwater , i s t h e t o t a l of a l l d issolved - s o l i d s o r s a l t s p re sen t and i s neasured i n t e r n s of p a r t s per n i l l i o n o r n i l l i q r a n s per l i t e r . These neasurenents a r e e s s e n t i a l l y t h e sane.

SALINITY LEVELS ARE H I G H -- I N THE COLORADO R I V E R

H i s t o r i c a l l y , t h e C o l o r a d o R i v e r ' s s a l i n i t y c o n c e n t r a t i o n h a s been h i g h e r t h a n t h a t o f mos t o t h e r m a j o r r i v e r s . The r i v e r ' s 1976 a v e r a q e a n n u a l s a l i n i t y r a n q e d f rom a b o u t 50 m i l l i g r a m s p e r l i t e r ( n g / 1 ) o f t o t a l d i s s o l v e d s o l i d s i n C o l o r a d o and Wyoming t o 823 ng /1 a t I m p e r i a l Dan i n A r i z o n a , t h e l a s t d i v e r s i o n p o i n t i n t h e Un i t ed S t a t e s . Fo r compar i - s o n , t h e maximum recomnended u n d e r EPA's d r i n k i n g w a t e r s t a n d a r d is 500 mg/ l .

I n c r e a s e s i n s a l i n i t y r e s u l t f r o n two b a s i c p r o c e s s e s - - s a l t l o a d i n g ( a d d i n g s a l t s ) and s a l t c o n c e n t r a t i o n ( r e d u c i n g w a t e r s u p p l y ) . S a l t l o a d i n q r e s u l t s b o t h f rom n a t u r a l r u n o f f and f rom s u c h a c t i v i t i e s a s i r r i g a t i o n . S a l t concen- t r a t i o n r e s u l t s when (1) w a t e r i s l o s t t h r o u g h e v a p o r a t i o n o r ( 2 ) w a t e r o f l o w e r s a l i n i t y t h a n t h a t i n downstream w a t e r is d i v e r t e d f r o n t h e b a s i n . Both i n c r e a s e s a l i n i t y downstream b e c a u s e t h e r e m a i n i n g s a l t i s c a r r i e d i n l ess w a t e r . I n v e s t i g a t i o n s i n d i c a t e t h a t t h e c a u s e s o f s a l t con- c e n t r a t i o n i n c r e a s e s i n t h e C o l o r a d o R i v e r a r e , i n o r d e r o f impor t ance : (1) n a t u r a l s o u r c e s , ( 2 ) i r r i q a t i o n r e t u r n f l o w s , ( 3 ) e v a p o r a t i o n and p l a n t g rowth , ( 4 ) o u t - o f - b a s i n e x p o r t s , and ( 5 ) m u n i c i p a l and i n d u s t r i a l s o u r c e s .

Al though v a r i o u s l e v e l s o f s a l i n i t y h a v e been p r o j e c t e d f o r t h e C o l o r a d o R i v e r , a l l s t u d i e s a g r e e t h a t s a l i n i t y w i l l i n c r e a s e marked ly i f i t i s n o t c o n t r o l l e d . The Bureau e s t i m a t e d t h a t w i t h o u t c o n t r o l m e a s u r e s , s a l i n i t y a t I m p e r i a l Dam w i l l i n c r e a s e f rom i t s p r e s e n t 823 n q / 1 t o a b o u t 1 , 2 1 4 mg/1 by t h e t u r n o f t h e c e n t u r y . The Bureau e s t i m a t e s a c o s t t o a g r i c u l t u r a l , m u n i c i p a l , and I n d u s t r i a l u s e r s o f t h e w a t e r t o be $230,000 I/ f o r e v e r y 1 mg/1 i n c r e a s e i n s a l i n i t y a t I m p e r i a l Dam. Adverse e f f e c t s o f s a l i n i t y i n c r e a s e s would be f e l t p r i m a r i l y i n t h e Lower C o l o r a d o R i v e r B a s i n .

PROGRAMS TO SOLVE THE SALINITY PROBLEM ARE - - - - - - - - - -

COSTLY AND MAY NOT WORK

The c u r r e n t s a l i n i t y c o n t r o l p rogram i s v e r y c o s t l y , may r e d u c e s a l i n i t y less t h a n e x p e c t e d , and i s d e s i g n e d t o m a i n t a i n s a l i n i t y a t 1 9 7 2 ' l e v e l s a t l e a s t t h r o u g h 1990 . However, t h e r e a r e no s p e c i f i c l o n g - r a n g e p l a n s t o c o n t r o l s a l i n i t y i n t h e b a s i n a f t e r 1990 . The e s t i m a t e d cos t f o r 4

l /Bu reau o f f i c i a l s s t a t e d t h a t t h i s e s t i m a t e i s c u r r e n t l y - b e i n g u p d a t e d and r e e v a l u a t e d and s h o u l d s i g n i f i c a n t l y i n c r e a s e when a new v a l u e i s a v a i l a b l e .

o f 1 7 I/ p r o j e c t s i n t h e program i s $ 2 7 9 m i l l i o n , $154 mi l l ion n o r e t h a n t h e 1974 a u t h o r i z e d cos t . A s t h e w a t e r i s d e v e l o p e d and p u t t o u s e , t h e r i v e r ' s s a l i n i t y i n c r e a s e s , r e q u i r i n g more s a l i n i t y c o n t r o l p r o j e c t s .

I n r e s p o n s e t o t h e g rowing s a l i n i t y p rob lem and t h e p o s s i b i l i t y t h a t EPA would s e t s a l i n i t y s t a n d a r d s t h a t pro- h i b i t f u r t h e r deve lopmen t , t h e s e v e n b a s i n S t a t e s recomnended i n 1972 t h a t :

--A s a l i n i t y p o l i c y b e a d o p t e d f o r t h e C o l o r a d o R i v e r s y s t e m t o n a i n t a i n s a l i n i t y c o n c e n t r a t i o n s i n t h e r i v e r a t o r be low l e v e l s t h e n ( 1 9 7 2 ) found i n t h e l o w e r main stem.

- - S a l i n i t y b e t r e a t e d a s a b a s i n w i d e prob lem t h a t n e e d s t o b e s o l v e d t o m a i n t a i n Lower B a s i n w a t e r s a l i n i t y a t o r below p r e s e n t l e v e l s w h i l e t h e b a s i n c o n t i n u e s t o d e v e l o p i t s compac t - appo r t i oned w a t e r s .

The S t a t e s i d e n t i f i e d t h e B u r e a u ' s C o l o r a d o R i v e r Water Q u a l i t y Inproveraent p r o g r a n a s t h e b e s t method f o r i n p l e n e n t - i n g t h e above o b j e c t i v e s . The c o m p r e h e n s i v e , 10 -yea r program s e t f o r t h p l a n s t o c o n t r o l 16 s a l i n i t y s o u r c e s and i n c l u d e d p r o v i s i o n s f o r r e l a t e d b a s i n w i d e p l a n n i n q .

The C o n g r e s s e n a c t e d t h e C o l o r a d o R i v e r B a s i n S a l i n i t y C o n t r o l A c t ( P u b l i c Law 9 3 - 3 2 0 , J u n e 2 4 , 1 9 7 4 ) t o h e l p s o l v e t h e b a s i n ' s s a l i n i t y p rob l ems and t o meet a w a t e r q u a l i t y c o n n i t n e n t t o Mexico. T i t l e I was a u t h o r i z e d t o i n p r o v e t h e q u a l i t y of w a t e r g o i n g t o Mexico downs t ream from I m p e r i a l Dan. T i t l e I1 au tho r i zed measu re s t o inprove w a t e r q u a l i t y u p s t r e a m f rom I m p e r i a l Dan.

S p e c i f i c a l l y , t i t l e I1 d i r e c t e d t h e S e c r e t a r y o f t h e I n t e r i o r t o implement t h e s a l i n i t y c o n t r o l p rogram r econ - mended by t h e S t a t e s and p r o v i d e d f o r :

- - C o n s t r u c t i o n , o p e r a t i o n , and n a i n t e n a n c e o f f o u r s a l i n i t y c o n t r o l works i n t h e C o l o r a d o R i v e r B a s i n , i n c l u d i n g Paradox V a l l e y and Grand V a l l e y i n C o l o r a d o , Las Veqas Wash i n Nevada, and C r y s t a l Geyse r i n Utah.

l / T h i s i n c l u d e s 16 p r o j e c t s i n t h e o r i g i n a l p r o g r a n p l u s t h e - Meeker Done p r o j e c t , added l a t e r .

-Completion of f e a s i b i l i t y invest igat ion and planning f o r another 1 2 s a l i n i t y control projects ident i f ied by the Bureau.

-Undertaking research on addit ional methods.

According t o Bureau o f f i c i a l s , the four upstream s a l i n i t y control u n i t s were authorized f o r construction before appropriate f e a s i b i l i t y s tud ies were completed and were jus t i f i ed on the bas is of soc i a l and p o l i t i c a l pressures ra ther than f o r economic reasons. The soc i a l and p o l i t i c a l j u s t i f i ca t i ons were based general ly on the f a c t t ha t water qual i ty i n the Lower Basin w i l l continue t o de te r io ra te a s undeveloped Upper Basin water resources a re used unless s a l i n i t y control measures a r e i n s t i t u t ed .

During the congressional hearings f o r t h i s Sa l in i t y Control Act, the administration recommended against authorizing the upstream projects f o r construction because adequate f e a s i b i l i t y s tud ies had not been completed. Spokesmen fo r the seven S ta tes t e s t i f i e d i n support of con- s t ruc t ing the four projects .

According t o a Bureau o f f i c i a l , the Bureau has been unable t o j u s t i fy the overal l program on an economic bas is , even though some individual p ro jec t s may be so j u s t i f i ed . Cost-effectiveness has been an object ive b u t not a requirement. I n e f f e c t , the t o t a l cos t t o remove s a l t from the r i v e r would be grea te r than the benef i t s t o the Lower Basin.

Costs fo r upstream projects have increased s ign i f ican t ly

Since passage of the 1974 a c t , the four authorized projects have experienced a 123-percent increase i n e s t i - mated cos t s . Based on April 1 9 7 3 pr ices , the a c t authorized $125.1 mil l ion plus fu ture i n f l a t i on f o r construction of t h e four t i t l e I1 projects . A s shown i n the following t ab l e , the cos t of these projects have r i sen t o $ 2 7 9 mi l l ion, an in - crease of about $154 million from June 1974 t o January 1978. In f la t ion represents about $ 6 2 mi l l ion, or 4 0 percent, of the increase i n estimated cost .

Es t ina ted Authorized cost 1978 Percentage

Project title cost 1974 (notes a & b) Increase increase

Paradox Valley unit $ 16,000 c/ 49,934 $ 33,934 2 12 Grand Valley unit 59,000 a/ 169,670 110,670 18 8 Las Veqas Wash unit 49,600 e / 56,481 6,881 14 Crystal Geyser unit 500 I/ "2,690 2,190 438

Total estimated costs $125r100 $278,775 $153,675 123 .-.

a/Does not include preauthoriza tion investigation costs, which - are currently estimated to be $893,000

b/Does not include interest during construction. - c/January 1977 costs. - d/Costs are as of January 1978 and include costs for onfarm -

improvements not funded by Public Law 93-320.

e/April 1976 costs. - f/July 1975 costs. -

Questionable economic and technical feasibility of upstrean projects - ---

The Bureau has not presented to the Conqress infornation on how nuch money would be saved (danaqes avoided) by the four authorized projects and has not conputed a benefit-cost ratio because they say it is n o t required by Public Law 93-320. As shown in the next table, we computed the cost-effectiveness of the four projects. The annual equivalent costs I/ were based on information provided by the Bureau. The annual benefits were conputed by nultiplying $230,000 2/ tines each n q / l reduction in the salinity level at Imperial Dan. The results

IJAnnual equivalent costs are all construction, operation, and maintenance costs (Tiscounted over the life of a project and presented on a yearly basis.

2/Annual benefits would be the avoidance of economic damaqes - of $230,000 cost bv each nq/1 increase in salinity at Imperial Dam. This fiqure is currently b e i n g reevaluated by t h e Pureau.

- show t h e e s t i m a t e d cost f o r t h r e e o f t h e p r o j e c t s a r e 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 e e s t i m a t e d b e n e f i t s .

S a l i n i t y r e d u c t i o n Annual Annual E x t e n t t h a t

a t e q u i v a - r e d u c t i o n cos t e x c e e d s I m p e r i a l l e n t i n r e d u c t i o n

P r o j e c t s Dam damaqes i n damages - cost -

Pa radox V a l l e y 18.2 $ 3,507 $4 ,186 $ ( 6 7 9 )

Grand v a l l e y 4 3 ' 10,824 9 ,890 934

Las Vegas Wash 9 8 , 7 2 7 2 ,070 6 ,657

C r y s t a l G e y s e r 0 . 3 234 69 1 6 5

C o n s t r u c t i o n o f s a l i n i t y c o n t r o l projects d e l a y e d

A l l f o u r a u t h o r i z e d p r o j e c t s h a v e b e e n s u b j e c t t o d e l a y s . The Bureau h a s d e c i d e d t o d e l a y c o n s t r u c t i o n o f t h e C r y s t a l G e y s e r u n i t b e c a u s e o f h i g h c o s t and t h e m i n o r i m p a c t i t w i l l h a v e o n r e d u c i n g s a l i n i t y a t I m p e r i a l Dam ( 0 . 3 m g / l ) . Con- p l e t i o n estimates f o r t h e Grand V a l l e y , Pa r adox V a l l e y , and Las Vegas Wash I/ p r o j e c t s h a v e b e e n e x t e n d e d 21 , 3 6 , and 48 mon ths , r e s p e c t i v e l y . Bureau o f f i c i a l s r e p o r t e d t h a t t h e s e s c h e d u l e d e l a y s were c a u s e d by d e l a y s i n c o m p l e t i n g d e f i n i t e p l a n r e p o r t s . They s a i d t h a t d e l a y s i n c o m p l e t i n g t h e r e p o r t were d u e t o (1) c o n f l i c t s i n p r i o r i t i e s be tween s a l i n i t y con- t rol projects and water r e s o u r c e d e v e l o p m e n t p r o j e c t s , ( 2 ) l a c k o f s u f f i c i e n t manpower t o meet s c h e d u l e s , and ( 3 ) r e q u i r e m e n t s t o add f i s h and w i l d l i f e m i t i g a t i o n m e a s u r e s t o some p r o j e c t s .

The p rob l em is compounded by t h e f a c t t h a t r e c e n t Bureau s t u d i e s h a v e d i s c l o s e d c e r t a i n t e c h n i c a l and f e a s i b i l i t y p r o b l e m s w i t h e a c h o f t h e p r o j e c t s . F o r examp le , c u r r e n t i n - f o r m a t i o n o n t h e s t a t u s of t h e Las Veqas Wash u n i t i n d i c a t e s t h a t i t w i l l n o t r e d u c e s a l i n i t y l e v e l s a s much a s i n i t i a l l y

l / I n l i g h t o f r e c e n t d e v e l o p m e n t s ( a s d i s c u s s e d i n t h i s - s e c t i o n ) , t h e Bu reau is a l s o d e l a y i n g c o n s t r u c t i o n o f t h e Las Veqas Wash t o s t u d y t h e p r o j e c t f u r t h e r .

a n t i c i p a t e d . The e s t i m a t e d a n n u a l e q u i v a l e n t cos ts i n c r e a s e d f r o m $ 4 m i l l i o n t o $8.7 n i l l i o n , w h i l e t h e p r o j e c t ' s i n p a c t a t Imperial Dan d e c l i n e d f r o m a r e d u c t i o n o f 1 3 n g / 1 t o 9 rag / l . ( S e e p. 82. ) The a n n u a l e q u i v a l e n t c o s t f o r t h i s p r o j e c t h a s i n c r e a s e d f r o n a b o u t $ 3 0 5 , 0 0 0 t o $ 9 7 0 , 0 0 0 p e r n g / 1 . B a s e d o n a n n u a l b e n e f i t s o f $ 2 3 0 , 0 0 0 p e r n g / l f o r s a l i n i t y r e d u c t i o n , t h e e c o n o n i c f e a s i b i l i t y o f t h e p r o j e c t i s h i g h l y s u s p e c t .

A s a r e s u l t , some o f t h e s e p r o j e c t s d o n o t a p p e a r a s f e a s i b l e a s i n i t i a l l y a n t i c i p a t e d . However , t h e B u r e a u and b a s i n S t a t e s c o n t e n d t h a t e c o n o m i c f e a s i b i l i t y i s n o t a con- d i t i o n f o r a p p r o v a l . T h e s e p r o j e c t s a r e f u r t h e r d i s c u s s e d i n a p p e n d i x V I .

F e a s i b i l i t y o f o t h e r 1 2 p r o j e c t s n o t known -

A l t h o u g h f e a s i b i l i t y s t u d i e s g e n e r a l l y h a v e n o t b e e n c o m p l e t e d o n a n y o f t h e o t h e r 1 2 s a l i n i t y c o n t r o l p r o j e c t s , p r e l i m i n a r y r e s u l t s i n d i c a t e t h a t t h e e c o n o m i c a n d t e c h n i c a l f e a s i b i l i t y o f f o u r o f t h e s e is q u e s t i o n a b l e .

The p r o p o s e d p l a n s o n 2 o f t h e 4 p r o j e c t s - - C o l o r a d o R i v e r I n d i a n R e s e r v a t i o n a n d P a l o V e r d e I r r i g a t i o n Dis t r ic t - - i n v o l v e i n p l e n e n t a t i o n o f o n f a r n i n n r o v e n e n t s a n d c a n a l a n d l a t e r a l l i n i n y p r o q r a n s . P r e l i n i n a r y s t u d y r e s u l t s show t h a t t h e s e p r o j e c t s w i l l h a v e l i t t l e i f a n y i n p a c t o n r e d u c i n q t h e r i v e r ' s s a l i n i t y . B u r e a u o f f i c i a l s s a i d t h a t t h e p o t e n t i a l o f t h e s e two u n i t s a p p e a r s l i n i t e d .

The p r o p o s e d p l a n f o r t h e t w o r e m a i n i n g p r o j e c t s - - L a V e r k i n S p r i n g s , a n d Glenwood Dotsero S p r i n q s - - i s f o r d e s a l t i n g water, w h i c h i n v o l v e s h i g h e n e r g y , c o n s t r u c t i o n , a n d o p e r a t i n q costs . An e x a n p l e o f s u c h h i q h cos t s i s t h e p r o p o s e d Yuna d e s a l t i n g p l a n t a s shown o n p a g e 38.

SALINITY CONTROL PROGRAM NOT CONSIDERED ADEQUATEFOR MEETINGASIN STANDARDS - ---- - -...-- --

A 1 thouq1-1 s a l i n i t y s t a n d a r d s h a v e b e e n s e t a t v a r i o u s p o i n t s a l o n g t h e r i v e r , i t i s d o u b t f u l t h a t t h e s t a n d a r d s w i l l be met when t h e r i v e r ' s w a t e r s u p p l y i s f u l l y d e v e l o p e d . One B u r e a u s t u d y s h o w s t h a t t h e s a l i n i t y l e v e l d u r i n g t h e p e r i o d 1 9 9 0 t o 2000 w i l l e x c e e d t h e s t a n d a r d s b y 90 t o 1 2 0 mg/ l w i t h c u r r e n t l y p l a n n e d d e v e l o p n e n t . The B u r e a u s t u d y i n d i c a t e s t h a t s o n e a d d i t i o n a l a c t i o n , s u c h a s n o r e s a l i n i t y c o n t r o l p r o j e c t s , s u p v l e n e n t e d w a t e r s u p p l y , o r new n a n a q e n e n t s t e p s , w i l l be n e c e s s a r y t o n e e t t h e e s t a b l i s h e d s a l i n i t y s t a n d a r d s .

EPA interpreted the Federal Water Pollution Control Act Amendments of 1972 (Public Law 92-500) as requiring water quality standards for salinity in the Colorado River. As a result, in November 1973 the seven basin States established the Colorado River Basin Salinity Control Forum to deal with this matter. In 1975 the States developed basin salinity standards and an implementation plan for controlling the river's salinity, which EPA approved in November 1976. Based on forum studies, salinity standards were established at the following locations along the river:

Locat ion

Below Hoover Dam Below Parker Dan At Imperial Dam

Salinity standard

Major components of the implementation plan included

--prompt construction and operation of the 4 salinity control units authorized by the Colorado River Salinity Control Act of 1974,

--construction of 12 other units specified in the 1974 act or their equivalents,

- t h e objective of no return of dissolved salts to the river from industrial uses,, and

--the reformulation of previously authorized but unconstructed Federal water projects to reduce the salt-loading effect.

Because of low cost-effectiveness and/or limited potential for reducing salinity in the river, the forum in August 1978 revised the implementation plan to defer construction of the Crystal Geyser unit and 2 of the 12 projects authorized for feasibility investigations--Colorado River Indian Reservation and Palo Verde Irrigation District unit. Construction of one additional salinity control unit--the Meeker Dome unit-and inclusion of areawide water quality management plans were added as principal components of the implementation plan. These water quality management plans are being developed by the individual basin States to conform with requirements of section 208 of the =Clean Water Act 4 1'1-17 (Public Law 95-217). Because these plansHhave not been ;

fully developed, it is not known what the impacts will be in controlling salinity in the basin.

I n t h e Augus t 1978 r e p o r t , t h e f o r u n c o n c l u d e d t h a t t h e e s t a b l i s h e d s a l i n i t y s t a n d a r d a t I m p e r i a l Dam c a n be m a i n t a i n e d t h r o u g h 1990 i f a l l t h e n e a s u r e s i n i t s s a l i n i t y c o n t r o l p l a n a re f u l l y implemented . I t i s d o u b t f u l however t h a t a l l s a l i n i t y c o n t r o l p r o j e c t s a u t h o r i z e d f o r c o n s t r u c t i o n or i n v e s t i g a t i o n by t h e 1 9 7 4 a c t w i l l b e implemented . One Bureau s t u d y h a s c o n c l u d e d t h a t b a s e d o n t h e c u r r e n t p l a n s f o r Upper B a s i n d e v e l o p m e n t , t h e f o r u m ' s s a l i n i t y c o n t r o l p r o g r a m w i l l n o t b e a d e q u a t e t o m a i n t a i n t h e e s t a b l i s h e d water q u a l i t y s t a n d a r d s t h r o u g h t h e 1990 t o 2000 time p e r i o d e v e n i f f u l l y i n p l e n e n t e d .

I n o r d e r t o p r o v i d e some e a r l y p e r s p e c t i v e o f p r o j e c t e d . , s a l i n i t y l e v e l s i n t h e r i v e r , t h e B u r e a u compared e s t i n a t e s o f f u t u r e s a l i n i t y l e v e l s w i t h t h e r e s u l t s o f o n e o f s e v e r a l a n a l y s e s made b y t h e fo rum. T h i s was p a r t o f a d r a f t o f a c o m p r e h e n s i v e e n v i r o n m e n t a l s t a t e m e n t c o v e r i n g r e c l a m a t i o n a c t i v i t i e s a l o n g t h e e n t i r e C o l o r a d o R i v e r .

W h i l e t h e method o f a n a l y s i s u s e d by t h e f o r u n a n d t h e Bureau were s i m i l a r , t h e fo rum used d i f f e r e n t i n p u t assump- t i o n s f o r v i r g i n f l o w a n d w a t e r d e p l e t i o n r a t e s t h a n t h e - Bureau . The B u r e a u assumed a v i r g i n f l o w o f 1 3 . 9 maf and a m o d e r a t e 1990 d e p l e t i o n l e v e l o f 1 3 . 5 maÂ£ w h i l e t h e forum used a v i r g i n f l o w o f 1 5 maÂ a n d 1 9 9 0 d e p l e t i o n r a t e o f 12 .6 maÂ£

The v i r g i n f l o w assumed by t h e fo rum a p p r o x i m a t e s t h e 1 4 . 8 maf est imate t h e B u r e a u u s e d f o r p l a n n i n g p u r p o s e s , w h i l e t h e 1 3 . 9 n a f t h e Bureau u s e d f o r t h i s s t u d y was b a s e d o n h y d r o l o g i c r e c o r d s f o r t h e p e r i o d 1941-74, s i n c e t h i s is t h e o n l y p e r i o d h a v i n g e x t e n s i v e c o n c u r r e n t r u n o f f a n d q u a l i t y d a t a . F u r t h e r , 13 .9 maf a l s o c l o s e l y a p p r o x i m a t e s t h e 1 3 . 7 n a f v i r g i n f l o w d u r i n g t h e p e r i o d o f a c t u a l r e c o r d f r o m 1922-77. The B u r e a u ' s s t u d y c o n c l u d e d t h a t i n o r d e r t o a t t a i n t h e a d o p t e d s a l i n i t y s t a n d a r d o f 8 7 9 mq/1 by 1 9 9 0 a n d b e y o n d , a d d i t i o n a l s a l i n i t y c o n t r o l n e a s u r e s , s u p p l e - mented w a t e r s u p p l y , o r new management s t e p s t o c o n t r o l u s e would b e n e c e s s a r y .

S t a t e r e p r e s e n t a t i v e s s a i d t h e f o r u m ' s i m p l e m e n t a t i o n p l a n c o n t e m p l a t e s t h e u s e o f o t h e r m e a s u r e s , i n c l u d i n g t h e u s e o f s a l i n e w a t e r f o r i n d u s t r i a l p u r p o s e s whenever p r a c t i - c a l , p r o g r a m s by water u s e r s t o c o p e w i t h h i g h e r s a l i n i t y w a t e r , improvements i n i r r i g a t i o n s y s t e n s a n d i r r i g a t i o n management t o r e d u c e s a l t p i c k u p , a n d v a r i o u s o t h e r F e d e r a l and n o n - F e d e r a l p r o q r a n s f o r c o n t r o l l i n g s a l i n i t y . F o r e x a m p l e , a S e p t e m b e r 1 9 7 7 E P A - c o n t r a c t e d s t u d y i d e n t i f i e d 1 2 p o t e n t i a l n a n a g e n e n t a c t i o n s t h a t c o u l d b e t a k e n by

S t a t e a n d l o c a l a g e n c i e s t o c o n t r o l s a l i n i t y i n t h e r i v e r . T h e s e a c t i o n s i n c l u d e

- - e s t a b l i s h i n g i r r i g a t i o n water a n d l a n d u s e c o n t r o l s ;

- - p r o n o t i n g c o n v e r s i o n o f l a n d f r o m i r r i g a t e d a g r i c u l t u r e t o o t h e r u s e s t h r o u g h S t a t e e c o n o m i c i n c e n t i v e s when h i g h l y s a l i n e r e t u r n f l o w s c a n n o t b e p r e v e n t e d , c o n t r o l l e d , o r t r e a t e d ; a n d

- - e s t a b l i s h i n g s p e c i a l u s e c h a r g e s f o r i r r i g a t i o n water p r o v i d e d f r o n r e c l a m a t i o n p r o j e c t s t o c a u s e more e f f i c i e n t u s a g e a n d t o e n c o u r a g e waste c o n t r o l m e a s u r e s .

According t o t h e E P A r epor t , some o f t h e a c t i o n s a r e e i t h e r p a r t i a l l y or f u l l y u n d e r w a y i n s e v e r a l S t a t e s . T h e r e p o r t s t a t e d t h a t t h e a c t i o n s a p p e a r t e c h n i c a l l y , econom- i c a l l y , a n d p o l i t i c a l l y p o s s i b l e a n d a p p e a r t o b e somewha t e f f e c t i v e f o r c o n t r o l l i n g c e r t a i n c a u s e s o f s a l i n i t y . However , a g r i c u l t u r a l i n t e r e s t s w o u l d b e o p p o s e d t o t h e s e a c t i o n s b e c a u s e n o s t wou ld i n t e r f e r e w i t h o r a d d c o s t s t o t h e i r o p e r a t i o n s .

The e f f e c t i v e n e s s o f a l l t h e a b o v e m e a s u r e s a n d t h e i r i m p a c t o n r e d u c i n g s a l i n i t y i n t h e b a s i n h a s n o t b e e n d e t e r - m i n e d , nor h a s i t b e e n d e t e r m i n e d how t h e y w o u l d f i t i n t o t h e o v e r a l l s a l i n i t y p r o g r a m .

S t a t e r e p r e s e n t a t i v e s s a i d t h a t t h e f o r u n ' s s a l i n i t y c o n t r o l p l a n i s s t r u c t u r e d f o r c o n t i n u a t i o n o f p l a n n i n g , s t u d i e s , a n d r e s e a r c h i n t o d i f f e r e n t w a y s o f c o n t r o l l i n g s a l i n i t y aÂ ter 1 9 9 0 o r w h e n e v e r t h e p r e s e n t p r o q r a n i s n o l o n g e r a d e q u a t e for m a i n t a i n i n g t h e s a l i n i t y s t a n d a r d s . However , B u r e a u o f f i c i a l s a d v i s e d u s t h a t t h e y a r e n o t a c t i v e l y p u r s u i n g any s a l i n i t y c o n t r o l m e a s u r e s o t h e r t h a n t h o s e m e n t i o n e d i n t h e 1 9 7 4 a c t p l u s o n e a d d i t i o n a l p r o j e c t .

C o u r t s u i t p e n d i n g

T h e water q u a l i t y s t a n d a r d s a d o p t e d by t h e s e v e n b a s i n S t a t e s were d e s i g n e d t o t r e a t s a l i n i t y a s a b a s i n - w i d e p r o b l e m r a t h e r t h a n a s a n i n d i v i d u a l S t a t e p r o b l e m . A s a r e s u l t , s a l i n i t y s t a n d a r d s w e r e n o t s e t a t S t a t e l i n e s t a t i o n s . A c c o r d i n g t o EPA o f f i c i a l s , t h e d a t a n e c e s s a r y t o d e v e l o p s o u n d n u m e r i c water q u a l i t y s t a n d a r d s was a v a i l - a b l e o n l y i n t h e r i v e r ' s lower m a i n s t e n .

T h e E n v i r o n m e n t a l D e f e n s e F u n d , a p r i v a t e e n v i r o n m e n t a l o r g a n i z a t i o n , b e l i e v e s t h a t e s t a b l i s h i n q s a l i n i t y c r i t e r i a f o r o n l y t h r e e l o c a t i o n s i n t h e r i v e r i s i n a p p r o p r i a t e .

I n Augus t 1977 i t f i l e d a c i v i l s u i t t o s e t a s i d e EPA's a p p r o v a l o f wha t i t c o n s i d e r s " i l l e g a l and u n e n f o r c e a b l e s a l i n i t y s t a n d a r d s " f o r i m p l e n e n t i n q s a l i n i t y c o n t r o l . The Env i ronmen ta l De fense Fund h a s p roposed e s t a b l i s h i n g s a l i n i t y s t a n d a r d s a t f i v e a d d i t i o n a l l o c a t i o n s t o e n s u r e p r o p e r c o n t r o l , m o n i t o r i n g , and e n f o r c e m e n t . The s u i t a s k s t h e c o u r t t o r e q u i r e EPA t o p r o m u l g a t e and implement e f f e c t i v e w a t e r q u a l i t y s t a n d a r d s and a n e f f e c t i v e p l a n f o r c o n t r o l l i n q s a l i n i t y i n t h e b a s i n . On March 30 , 1 9 7 9 , t h e Env i ronmen ta l De fense Fund f i l e d a m o t i o n f o r s u n n a r y judgment , and a d e c i s i o n o n t h e n o t i o n i s e x p e c t e d i n a b o u t 60 d a y s .

EPA a d v i s e d u s t h a t i t w i l l b e m o n i t o r i n g s a l i n i t y l e v e l s a t 1 2 l o c a t i o n s u p s t r e a n f r o n Hoover Dan. The need f o r a d d i t i o n a l c o n t r o l m e a s u r e s w i l l b e i d e n t i f i e d a s s a l i n - i t y l e v e l s change . I t s n o n i t o r i n q w i l l n o t i n v o l v e e s t a b l i s h - i n g s a l i n i t y s t a n d a r d s a t t h e 1 2 l o c a t i o n s .

DESALTING WATER F O R -- MEXICO--A COSTLY PROPOSITION

The water f l o w i n g i n t o Mexico mus t m e e t " s a l i n i t y s t a n d a r d s " s p e c i f i e d i n a n a g r e e m e n t be tween t h e Un i t ed S t a t e s a n d Mexico. S e v e r a l m e a s u r e s were d e c i d e d upon t o c o n t r o l t h e s a l i n i t y l e v e l o f w a t e r g o i n q i n t o Mexico. However, t h e costs o f t h e s e n e a s u r e s h a v e r i s e n s h a r p l y , and d e l a y s i n p r o j e c t s have been e x p e r i e n c e d . Some o f t h e o r i g i n a l a l t e r n a t i v e s s h o u l d b e r e c o n s i d e r e d a s t h e y may b e n o r e e c o n o m i c a l l y f e a s i b l e now t h a n t h e a u t h o r i z e d n e a s u r e s .

I n 1 9 6 1 t h e s a l i n i t y o f w a t e r d e l i v e r e d t o Mexico rose f rom 800 nq/1 t o 1 ,500 n g / 1 d u e t o t h e c l o s u r e of G l e n Canyon Dan, which r e d u c e d o v e r d e l i v e r i e s t o Mexico, and t h e dis- c h a r g e o f h i g h l y s a l i n e d r a i n a g e w a t e r f rom t h e Wellton-Mohawk I r r i g a t i o n and D r a i n a g e D i s t r i c t , n e a r Yuma, A r i z o n a , i n t o t h e C o l o r a d o R i v e r .

I n 1972 P r e s i d e n t Nixon c o m i t t e d t h e Un i t ed S t a t e s t o f i n d a p e r n a n e n t , d e f i n i t i v e , a n d j u s t s o l u t i o n t o t h e s a l i n i t y p r o b l e n . A s a r e s u l t , t h e two c o u n t r i e s r e a c h e d a n e g o t i a t e d a g r e e m e n t t h a t was f o r n a l i z e d i n 1973 a s m i n u t e 242 o f t h e I n t e r n a t i o n a l Boundary and Wate r Commission. The k e y p r o v i s i o n o f t h e n i n u t e was a U.S. c o n n i t m e n t t o a d o p t m e a s u r e s t o a s s u r e t h a t t h e ' w a t e r s d e l i v e r e d t o Mexico would have a n a v e r a g e a n n u a l s a l i n i t y o f n o t more t h a n 1 1 5 p a r t s p e r m i l l i o n p l u s o r n i n u s 30 p a r t s p e r m i l l i o n , o v e r t h e a n n u a l a v e r a g e s a l i n i t y a t I m p e r i a l D a m .

O t h e r f e a t u r e s o f t h e m i n u t e i n c l u d e d e x t e n s i o n o f a d r a i n t o b y p a s s Wellton-Mohawk d r a i n a g e w a t e r f rom t h e

C o l o r a d o R i v e r t o t h e S a n t a C l a r a S l o u g h , w h i c h f l o w s i n t o t h e G u l f o f C a l i f o r n i a , a t U . S . e x p e n s e a n d l i n i t i n q e a c h c o u n t r y ' s p u n p a g e o f g r o u n d w a t e r t o 1 6 0 , 0 0 0 a c r e - f e e t a n n u a l l y w i t h i n 5 miles o f t h e A r i z o n a - S o n o r a i n t e r n a t i o n a l b o u n d a r y .

I m p l e m e n t i n g t h e m i n u t e r e q u i r e d l e g i s l a t i o n a u t h o r i z i n q f u n d s t o c o n s t r u c t t h e f a c i l i t i e s n e c e s s a r y t o a c h i e v e t h e agreed-upon s a l i n i t y r e q u i r e m e n t s . T h e s e f a c i l i t i e s were n o t d e f i n e d i n t h e m i n u t e b u t were i d e n t i f i e d i n t i t l e I of t h e C o l o r a d o R i v e r B a s i n S a l i n i t y C o n t r o l A c t .

T i t l e I p r o v i d e d f o r :

--Measures n e c e s s a r y t o c o n t r o l s a l i n i t y o f t h e r i v e r w a t e r d e l i v e r e d t o Mexico a t t h e N o r t h e r l y I n t e r - n a t i o n a l Boundary , i n c l u d i n g t h e c o n s t r u c t i o n , o p e r a t i o n , a n d m a i n t e n a n c e o f a p r e t r e a t n e n t and d e s a l t i n g p l a n t o n t h e Wellton-Mohawk d r a i n ; t h e c o n s t r u c t i o n o f a 5 1 - n i l e - l o n g b y p a s s d r a i n ; a n i r r i g a t i o n e f f i c i e n c y p r o q r a n ; and a n a c r e a q e r e d u c t i o n p r o q r a m o f 1 0 , 0 0 0 a c r e s i n t h e W e l l t o n - Mohawk I r r i g a t i o n a n d D r a i n a g e D i s t r i c t t o r e d u c e t h e volume o f i r r i g a t i o n r e t u r n f l o w s .

- - C o n s t r u c t i o n of a new c o n c r e t e - l i n e d , 4 9 - n i l e s e c t i o n o f t h e C o a c h e l l a C a n a l t o s a l v a q e w a t e r t o r e p l a c e t h e w a t e r s t e m p o r a r i l y b y p a s s e d t o t h e Gul f o f C a l i f o r n i a -

- - I n s t a l l a t i o n o f p r o t e c t i v e q r o u n d w a t e r wel l s along t h e i n t e r n a t i o n a l b o r d e r t o c o n t r o l g r o u n d w a t e r p u n p i n g a l o n g t h e b o r d e r by Mexico.

S i q n i f i c a n t -- cost g r o w t h and s c h e d u l e d e l a y s for t i t l e I m e a s u r e s

S i n c e p a s s a g e o f P u b l i c Law 93-320 i n 1 9 7 4 , a c t i o n t o implement t i t l e I s a l i n i t y c o n t r o l n e a s u r e s h a s b e e n d e l a y e d and t h e costs h a v e r i s e n s h a r p l y . I n a d d i t i o n , t h e B u r e a u t o l d u s t h a t t h e d a i l y c a p a c i t y o f t h e d e s a l t i n g p l a n t h a s been r e d u c e d t o t h e s n a l l e s t s i z e p o s s i b l e t o n e e t t h e r e q u i r e m e n t s o f t h e a c t .

E s t i m a t e d costs f o r t h e d e s a l t i n g complex a n d o t h e r t i t l e I m e a s u r e s h a v e i n c r e a s e d f r o n $155.5 n i l l i o n t o $ 3 3 3 . 7 n i l l i o n ~ a n i n c r e a s e o f $178 .2 n i l l i o n , o r 1 1 5 p e r c e n t . On J a n u a r y 3 0 , 1979 , t h e D e p a r t n e n t o f t h e I n t e r i o r r e q u e s t e d c o n g r e s s i o n a l a u t h o r i z a t i o n f o r t h e a d d i t i o n a l f u n d s . The f o l l o w i n g t a b l e s h o w s t h e cost i n c r e a s e by i n d i v i d u a l m e a s u r e .

1974 I n c r e a s e ~ u t h o r i z e d J u l y 1977 or

Costs -- e s t i m a t e d e c r e a s e

--------.- ( 0 0 0 omitted)--------- D e s a l t i n g p l a n t and r e l a t e d f e a t u r e s :

D e s a l t i n g p l a n t f a c i l i t i e s ( n o t e a ) $ 6 2 , 0 8 0 $178 ,400 $166 ,320

B y p a s s d r a i n 1 5 , 3 7 0 23 ,600 8 ,230 Main o u t l e t d r a i n

e x t e n s i o n s i p h o n 3 , 1 0 0 2 , 9 8 5 ( 1 1 5 ) I r r i g a t i o n e f f i c i e n c y

improvement p r o g r a n 2 , 0 0 0 3 , 5 8 5 1 , 5 8 5 A c r e a g e r e d u c t i o n a n d / o r

on fa rm i r r i g a t i o n s y s t e n s improvement 1 0 , 5 0 0 2 2 , 5 6 7 1 2 , 0 6 7

G i l a R i v e r c o n t r o l n e a s u r e s be low P a i n t e d Rock Dam -- 5 ,000 6 , 7 6 3 -- 1 , 7 6 3

T o t a l f o r d e s a l t i n g p l a n t c o n p l e x $ 9 8 , 0 5 0 $ 2 3 7 , 9 0 0 $139 ,850

O t h e r m e a s u r e s :

L i n i n g C o a c h e l l a C a n a l $ 20 ,400 $ 4 3 , 6 4 0 $ 2 3 . 2 4 0 P r o t e c t i v e / r e g u l a t o r y pumps 1 7 , 6 0 0 2 6 , 1 6 5 8 , 5 6 5 O t h e r 1 9 , 4 5 0 -- -- 2 5 , 9 8 7 6 , 5 3 7 -... -

T o t a l e s t i m a t e d costs

a / I n c l u d e s cost o f t e s t i n g and r e s e a r c h a n d d e v e l o p m e n t - a t t h e Yuma D e s a l t i n q T e s t F a c i l i t y .

Whi le i n f l a t i o n a c c o u n t s f o r $ 6 4 . 3 m i l l i o n , o r 36 p e r c e n t , o f t h e $178.2 m i l l i o n i n c r e a s e , Bureau o f f i c i a l s b e l i e v e t h a t t h e r e n a i n i n g cost i n c r e a s e s were d u e m a i n l y t o e n q i n e e r i n g and d e s i g n c h a n g e s , f i s h and w i l d l i f e m i t i g a t i o n costs , and t h e f a c t t h a t cost e s t i m a t e s p r e p a r e d f o r t h e l e g i s l a t i o n we re n o t p r e c i s e . The o f f i c i a l s s a i d t h e o r i g i n a l co s t estimates f o r t i t l e I were p r e p a r e d h a s t i l y w i t h l i t t l e time g i v e n t o i n v e s t i g a t i o n o f cos t and t e c h n i c a l d a t a , i n a n e f f o r t t o g i v e prompt e f f e c t t o t h e 1973 a g r e e m e n t w i t h Mexico.

I n a d d i t i o n t o s i g n i f i c a n t cos t i n c r e a s e s , e s t i m a t e d c o n p l e t i o n d a t e s h a v e s l i - p p e d f rom 11 t o 4 8 months f o r v a r i o u s p r o j e c t components . Bureau o f f i c i a l s s a i d t h a t s c h e d u l e d e l a y s o f t i t l e I f e a t u r e s we re c a u s e d by

- - r e a s s e s s m e n t of p r e c o n s t r u c t i o n and c o n s t r u c t i o n r e q u i r e m e n t s and

- - d e l a y s i n c o m p l e t i o n o f o n g o i n q s t u d i e s n e c e s s a r y t o d e v e l o p p r o j e c t p l a n s .

A l t e r n a t i v e s t o l a r q e d e s a l t i n g - - p l a n t s h o u l d be c o n s i d e r e d

The e s t i m a t e d cos t o f t h e d e ~ a l t i n q ' c o m ~ l e x h a s e s c a l a t e d f rom $62 m i l l i o n t o a b o u t $178 m i l l i o n , a n i n c r e a s e o f $116 m i l l i o n , o r 187 p e r c e n t . Annual o p e r a t i n g cos t s f o r t h e complex a r e e s t i m a t e d t o b e $14 m i l l i o n . A t t h e s a n e time, t h e s i z e o f t h e p l a n t h a s been r e v i s e d downward f rom a c a p a c i t y i n e x c e s s o f 100 t o 96 m i l l i o n g a l l o n s a d a y .

The d r a i n a g e r e t u r n f l o w o f . t h e Wellton-Mohawk I r r i g a t i o n and Dra inage Dis t r ic t h a s been a p p r o x i m a t e l y 200,000 a c r e - f e e t a y e a r . The Bureau h o p e s t o r e d u c e s i g n i f i c a n t l y t h e r e t u r n f l o w f rom t h e d i s t r i c t by implement inq a n i r r i q a t i o n improvement p r o g r a n . Based o n a n o p e r a t i o n a l s t u d y , o f a 20-year p e r i o d e n d i n g i n 1996 , t h e Bureau p r o j e c t e d t h a t o v e r a 50-year p e r i o d t h e r e t u r n f l o w would a v e r a g e 155 ,000 a c r e - f e e t . T h i s a n a l y s i s showed t h a t t h e d e s a l t i n g complex would s a l v a q e 88 ,000 o f t h e 155 ,000 a c r e - f e e t w i t h t h e r e m a i n i n g 67,000 a c r e - f e e t b e i n g d i v e r t e d down t h e b y p a s s d r a i n t o t h e S a n t a C l a r a S lough .

The 67 ,000 a c r e - f e e t c o n s i s t s o f 35,000 a c r e - f e e t o f b r i n e and w a s t e w a t e r f r o n t h e d e s a l t i n g p l a n t and 32,000 a c r e - f e e t which w i l l b e bypas sed when t h e p l a n t i s n o t re- q u i r e d t o o p e r a t e b e c a u s e o f s u r p l u s w a t e r i n t h e r i v e r . Bureau o f f i c i a l s p o i n t o u t , however , t h a t i f t h e w a t e r s u r p l u s d o e s n o t o c c u r a s p r o j e c t e d , t h e n t h e p l a n t would b e r e q u i r e d t o d e s a l t a p o r t i o n o r a l l o f t h e 32 ,000 a c r e - f e e t . I n o t h e r t e r n s , t h e d e s a l t i n g p l a n t i s c o s t i n g a t l e a s t $178 m i l l i o n i n c o n s t r u c t i o n c o s t s p l u s $14 m i l l i o n i n o p e r a t i o n and m a i n t e n a n c e c o s t s t o s a v e 88 ,000 a c r e - f e e t e a c h y e a r . Based on t h e B u r e a u ' s J u l y 1977 e s t i m a t e o f a n n u a l e q u i v a l e n t cos t s t o o p e r a t e t h e d e s a l t i n g p l a n t , w e e s t i n a t e t h a t i t would cost $ 3 3 8 an a c r e - f o o t t o d e l i v e r 88 ,000 a c r e - f e e t o f w a t e r t o Mexico. I n c o n t r a s t , t h e costs o f augmen t ing s t r e a m f l o w s have been e s t i m a t e d t o b e a s low a s $ 3 a n a c r e - f o o t , a l t h o u g h t h e p r o c e s s h a s n o t been f u l l y p r o v e n . I n a n y e v e n t , t h e costs t o d e s a l i n a t e w a t e r h a v e r i s e n t o t h e p o i n t whe re a l t e r n a t i v e s s h o u l d be c o n s i d e r e d .

P r i o r t o t h e a p p r o v a l o f m i n u t e 242, a P r e s i d e n t i a l i n t e r - agency t a s k f o r c e , c h a i r e d by Ambassador H e r b e r t B r o w n e l l , J r . , a s S p e c i a l R e p r e s e n t a t i v e o f P r e s i d e n t R i c h a r d M . N ixon , con- s i d e r e d s e v e r a l a l t e r n a t i v e m e a s u r e s and d i f f e r e n t d e s a l t i n g p r o j e c t s b e f o r e d e c i d i n g o n t h e a u t h o r i z e d p r o j e c t . Durinq t h e s e c o n s i d e r a t i o n s , Ambassador Browne l l made a c o n n i t m e n t to t h e b a s i n S t a t e s t o t h e e f f e c t t h a t t h e s o l u t i o n o f t h e s a l i n i t y p rob l ems w i t h Mexico s h o u l d n o t r e d u c e t h e i r w a t e r s u p p l y . Among t h e a l t e r n a t i v e s c o n s i d e r e d were n i n e d i f f e r e n t d e s a l t i n g p l a n t s , b y p a s s i n g Wellton-Mohawk d r a i n a g e w a t e r

and s u b s t i t u t i n q i t w i t h w a t e r a l l o c a t e d t o o t h e r S t a t e s , and t o t a l o r p a r t i a l shutdown o f t h e Wellton-Mohawk I r r i g a t i o n and D r a i n a g e D i s t r i c t . U l t i m a t e l y , t h e a l t e r n a t i v e n e a s u r e s t o t h e d e s a l t i n g p l a n t were d i s c a r d e d a s i n f e a s i b l e f o r e c o n o n i c a n d / o r p o l i t i c a l r e a s o n s .

I n conment ing o n o u r d r a f t r e p o r t , Bureau o f f i c i a l s s t a t e d t h e Bureau was n o t r e q u e s t e d o r a u t h o r i z e d t o i n v e s t i - g a t e t h e f e a s i b i l i t y o f t h e d e s a l t i n g c o n p l e x . They s a i d t h e Bureau had no p l a n s t o e v a l u a t e t h e e c o n o n i c f e a s i b i l i t y o f t h e d e s a l t i n g complex or a n y o t h e r a l t e r n a t i v e . However, Depar tment o f t h e I n t e r i o r o f f i c i a l s r e c e n t l y d e c i d e d t h a t a l t e r n a t i v e s t o t h e d e s a l t i n g complex s h o u l d b e c o n s i d e r e d . During h e a r i n q s o n March 2 0 , 1979 , b e f o r e t h e Subcommit tee on Water and Power R e s o u r c e s , House C o m m i t t e e on I n t e r i o r and I n s u l a r A f f a i r s , I n t e r i o r o f f i c i a l s s a i d two a l t e r n a - t i v e s t o t h e d e s a l t i n g complex h a v e been p roposed which c o u l d p o t e n t i a l l y r e d u c e t h e s i z e o f t h e d e s a l t i n q p l a n t .

--Expand t h e Wellton-Mohawk i r r i g a t i o n inprovernent program t o r e d u c e r e t u r n f l o w t o 80 ,000 a c r e - f e e t p e r y e a r , which c o u l d p o t e n t i a l l y r e d u c e t h e s i z e o f t h e d e s a l t i n g p l a n t up t o 40 p e r c e n t .

--&use r e t u r n f l o w w a t e r on e x i s t i n g Wellton-Mohawk i r r i g a t e d l a n d s by (1) d e s i q n a t i n q a s p e c i f i c a r e a f o r u s e o f d r a i n a g e w a t e r o n l y and r e s t r i c t i n g t h e c h o i c e o f c r o p s , ( 2 ) r e t u r n i n g d r a i n a g e w a t e r t o t h e W e l l t o n Cana l and n i x i n g i t w i t h incoming C o l o r a d o R i v e r w a t e r , and ( 3 ) r e s t r i c t i n g d i v e r s i o n s t o Wellton-Mohawk w i t h some f o r n of c o m p e n s a t i o n t o t h e l andowner s .

I n t e r i o r o f f i c i a l s p o i n t e d o u t t h a t t h e s e a l t e r n a t i v e s were p roposed o n l y r e c e n t l y and h a v e n o t b e e n s t u d i e d f u l l y t o d e t e r m i n e t h e i r p o t e n t i a l . F u r t h e r n o r e , t h e y p o i n t e d o u t t h a t s i m i l a r p r o p o s a l s were r e j e c t e d by t h e Browne l l t a s k f o r c e .

I n t e r i o r a q r e e d t o c o n s i d e r t w o a d d i t i o n a l a l t e r n a t i v e s s u g g e s t e d by t h e subcornmi t t ee .

--Buyinq o u t Wellton-Mohawk t o t a l l y w i t h t h e l a n d l e a s e d back t o t h e f a r n e r s ( t h e r e b y d e c r e a s i n q w a t e r u s e by t e l l i n g t h e - f a r m e r s what c r o p s t h e y c a n g r o w ) .

--Buying t h e w a t e r deve lopmen t r i g h t s t o Wellton-Mohawk and t h e n t e l l i n g t h e f a r m e r s how t h e y c a n u s e t h e w a t e r .

I n t e r i o r o f f i c i a l s t o l d u s t h e y p l a n t o c o m p l e t e t h e i r e v a l u a t i o n o f t h e f o u r a l t e r n a t i v e s a b o u t nid-May 1979 . They

p l a n t o u s e d a t a a l r e a d y a v a i l a b l e , a s t i n e does n o t p e r m i t them t o p e r f o r m a d d i t i o n a l f i e l d s t u d i e s .

I n a d d i t i o n , w e b e l i e v e t h e r e i s a n o t h e r a l t e r n a t i v e w o r t h y o f c o n s i d e r a t i o n . I n o u r d r a f t r e p o r t , w e h a d sug- g e s t e d t h a t f u n d i n g f o r c o n s t r u c t i o n o f t h e Yuna complex b e d e f e r r e d u n t i l t h e Bureau e v a l u a t e d o t h e r less c o s t l y a l t e r n a t i v e s , s u c h a s b y p a s s i n g Wellton-Mohawk r e t u r n f l o w s a n d s u b s t i t u t i n g them w i t h water f r o n t h e b a s i n S t a t e s ' a l l o c a t i o n s . T h i s a l t e r n a t i v e a p p e a r s t o be f e a s i b l e b u t p r o b a b l y would n o t b e a c c e p t a b l e t o t h e S t a t e s . Even t h o u q h Ambassador B r o w n e l l d i s m i s s e d t h i s a l t e r n a t i v e e a r l i e r b e c a u s e o f t h e loss t o U.S. u s e r s o f t h e s u b s t i t u t e d w a t e r , es t imated a t t h a t t i m e t o be 220,000 a c r e - f e e t , t h e B u r e a u i s now u s i n g i t a s a t e m p o r a r y m e a s u r e .

Ambassador B r o w n e l l ' s r e a s o n s f o r r e j e c t i n g t h e b y p a s s a l t e r n a t i v e n e e d t o b e r e c o n s i d e r e d b e c a u s e t h e B u r e a u e s t i m a t e s o n l y 1 2 3 , 0 0 0 a c r e - f e e t r a t h e r t h a n 220,000 a c r e - f e e t would h a v e t o be r e p l a c e d a n n u a l l y by t h e F e d e r a l Government i f t h e Yuma p l a n t was n o t b u i l t . I n a n y e v e n t , e v e n i f t h e p l a n t i s b u i l t , t h e Government w i l l h a v e t o r e p l a c e 35,000 a c r e - f e e t o f w a t e r . A n o t h e r r e a s o n f o r r e c o n s i d e r i n g t h i s a l t e r n a t i v e i s t h e s i g n i f i c a n t cost i n c r e a s e of t h e Yuma complex.

I n comment ing o n our d r a f t r e p o r t , Bureau a n d S t a t e o f f i c i a l s o b j e c t e d t o t h i s s u g g e s t e d b y p a s s a l t e r n a t i v e . They p o i n t e d o u t t h a t t h e n e g a t i v e i m p a c t of t h e b y p a s s a l t e r n a t i v e i s t h e l o s s of water t o t h e U . S . u s e r s ~ t h e S t a t e s . They c o n t e n d t h a t b e c a u s e t h e F e d e r a l Government d o e s n o t own o r h a v e r i g h t s t o a n y w a t e r s t o r e d i n t h e r e s e r v o i r s a n d a l l t h e C o l o r a d o R i v e r water b e l o n g s t o t h e S t a t e s , a n y water l o s s would h a v e t o c o n e f r o m t h e S t a t e s ' a l l o c a t i o n s .

I n a d d i t i o n , B u r e a u o f f i c i a l s a l s o s a i d i t s h o u l d be k e p t i n mind t h a t w a t e r l o s t t o t h e S t a t e s w h i l e imple rnen t inq a n y a l t e r n a t i v e m u s t b e r e p l a c e d , a s p r o v i d e d by t h e 1974 S a l i n i t y C o n t r o l A c t . D u r i n g t h e r e c e n t h e a r i n g s t o i n c r e a s e t h e a u t h o r i z e d c o s t c e i l i n q f o r t h e Yuna c o n p l e x , I n t e r i o r c i t e d t h i s F e d e r a l o b l i g a t i o n a s o n e r e a s o n f o r a c t i n g q u i c k l y t o a p p r o v e t h e Yuna p r o p o s a l . I n t e r i o r o f f i c i a l s r e p o r t e d t h e U n i t e d S t a t e s is a l r e a d y o b l i g a t e d t o r e p l a c e a b o u t 1 n i l l i o n a c r e - f e e t o f d r a i n a g e w a t e r w h i c h h a s b e e n b y p a s s e d s i n c e p a s s a g e o f t h e 1974 ac t .

E x c e p t f o r d e c r e e d I n d i a n a n d F e d e r a l r e s e r v e d w a t e r r i g h t s , a l l t h e C o l o r a d o R i v e r w a t e r b e l o n g s t o t h e S t a t e s . T h e r e f o r e , a q u e s t i o n m u s t b e r e s o l v e d : How w i l l t h e F e d e r a l

Government meet i t s o b l i g a t i o n t o r e p l a c e water l o s t a s a r e s u l t o f b y p a s s i n g w a t e r f rom t h e Wellton-Mohawk p r o j e c t t o t h e S a n t a C l a r a S lough?

Ano the r f a c t o r which n e e d s t o b e c o n s i d e r e d i n a n y e v a l u a t i o n o f t h e b y p a s s a l t e r n a t i v e i s t o wha t e x t e n t t h e Government h a s a n o b l i g a t i o n t o r e p l a c e bypas sed w a t e r . We a g r e e t h a t a n o b l i g a t i o n d o e s e x i s t u n d e r t h e 1974 a c t , b u t t h e p o i n t i n t i n e when t h a t o b l i g a t i o n b e q i n s t o a c c r u e i s s u b j e c t t o more t h a n o n e i n t e r p r e t a t i o n .

The a c t s t a t e s t h a t e x c e p t i n t i m e s o f s u r p l u s w a t e r i n t h e C o l o r a d o R i v e r , r e p l a c e m e n t o f t h e r e j e c t s t r e a m from t h e d e s a l t i n q p l a n t and d r a i n a q e w a t e r bypas sed t o t h e S a n t a C l a r a S lough is r e c o g n i z e d a s a n a t i o n a l o b l i q a - t i o n , a s p r o v i d e d f o r i n s e c t i o n 202 of t h e 1968 C o l o r a d o Bas in P r o j e c t S t o r a g e A c t ( P u b l i c Law 90-537) . S e c t i o n 202 p r o v i d e s t h a t s a t i s f a c t i o n o f t h e r e q u i r e m e n t s o f t h e Mexican Water T r e a t y f rom t h e Co lo rado R i v e r c o n s t i t u t e s a n a t i o n a l o b l i g a t i o n and t h a t t h i s o b l i g a t i o n w i l l b e met by augment ing t h e b a s i n w a t e r s u p p l y . Accord ing t o t h e 1968 a c t , t h e b a s i n S t a t e s a r e t o p r o v i d e w a t e r t o n e e t t h e Mexican commitnen t u n t i l t h e Congre s s h a s a u t h o r i z e d t h e w a t e r a u g m e n t a t i o n p l a n and i t is i n o p e r a t i o n .

The Bureau b e l i e v e s t h a t t h e F e d e r a l o b l i g a t i o n t o r e p l a c e l o s t w a t e r began w i t h e n a c t n e n t o f t h e 1 9 7 4 a c t and now t o t a l s a b o u t 1 m i l l i o n a c r e - f e e t . Al though w e a q r e e t h a t t h i s n a y b e a r e a s o n a l b e i n t e r p r e t a t i o n , w e b e l i e v e t h e r e a r e two o t h e r e q u a l l y r e a s o n a b l e i n t e r p r e t a t i o n s . These a r e t h a t t h e n a t i o n a l o b l i g a t i o n d i d n o t b e g i n t o a c c r u e u n t i l

- - t he e x t e n s i o n o f t h e b y p a s s d r a i n t o t h e S a n t a C l a r a S lough was comple t ed i n 1977 and

- - the a u g m e n t a t i o n p l a n f o r i n c r e a s i n q w a t e r s u p p l y h a s been app roved by t h e Congre s s and i s i n o p e r a t i o n , a s c i t e d i n s e c t i o n 202 o f t h e 1968 a c t .

The Bureau h a s i n i t i a t e d s t u d i e s o f v a r i o u s me thods o f a u q n e n t i n q t h e r i v e r ' s w a t e r s u p p l y . Sone o f t h e n e t h o d s examined a p p e a r p r o m i s i n g , b u t s o f a r none have been p r o v e n i n one way o r a n o t h e r The Bureau h a s been u n a b l e t o q u a n t i f y , w i t h c e r t a i n t y , t h e a n o u n t o f w a t e r r e s u l t i n g f rom t h i s p r o q r a n .

CONCLUSIONS \

Much u n c e r t a i n t y e x i s t s a b o u t t h e e f f e c t i v e n e s s and e f f i c i e n c y o f t h e s a l i n i t y c o n t r o l p r o q r a n f o r t h e b a s i n and ''- whe the r i t c a n a c h i e v e t h e i n t e n d e d r e s u l t s . A l s o , assuning>n a n n u a l v i r g i n f l o w of l ess t h a n 14 n a f and u s i n g t h e B u r e a u ' s

assumptions of fu ture r a t e of water resource development, the s a l i n i t y control plan, even i f implemented successfully, w i l l not by i t s e l f achieve the water qual i ty standards established fo r the basin. The effectiveness of the 1974 Sa l in i ty Control Act i n control l ing s a l i n i t y i n the basin, i s questionable a t best. The program got o f f to a bad s t a r t because the projects included i n the ac t were based on has t i l y prepared, inadequate s tudies which resulted i n numerous program changes and cor- respondingly s ign i f ican t cost increases.

I t is doubtful now tha t the current s a l i n i t y control program w i l l reduce s a l t i n the r iver as much a s predicted because a t l e a s t 6 of the 1 7 projects i n the program may be i n trouble. Construction has been deferred on two projects and preliminary s tudies on four other projects indicate they may be questionable. In te r io r , EPA, and S ta te o f f i c i a l s told u s t h a t adJiJ.1 s a l i n i t y i n the basi addit ional measures w i t h the exist ing program has not been

r impacts been quantif ied. We believe involved w i t h a l l these fac tors point

out the need for-an~w_.a.~qessment of the overal l s a l i n i t y 11 a s a l ternat ive solutions.

Under the normal water project approval process, the tech- n ical and economic f e a s i b i l i t y of the s a l i n i t y control projects would have been evaluated before authorization to insure a workable and cost-effective program. T h i s was not done w i t h the currently authorized projects . Such a study should have disclosed tha t the projects have h i g h cos ts compared t o bene- f i t s , and t h e i r effectiveness i n reducing s a l i n i t y i s questionable. I f the bas in ' s s a l i n i t y is t o be controlled or reduced while the water resources a r e developed, the limited money available for s a l i n i t y control m u s t be applied t o the most cost-effect ive projects . We believe, therefore, t ha t the cos ts of s a l i n i t y control projects should be compared to the benefi ts derived so t ha t the most cost-effect ive projects a r e chosen.

Specif ical ly, we believe tha t the Crystal Geyser and Las Vegas Wash projects , a s presently formulated, w i l l have minor impact i n reducing the r i v e r ' s s a l i n i t y and w i l l cos t more than benef i ts received.

The relat ionships and problems of water ava i l ab i l i t y , development, and qual i ty w i l l have t o be addressed as in ter re la ted issues i n order t o achieve and maintain the water qua l i ty standards. The current project-by-project approach has led to water development t h a t g r e a t l y increases s a l i n i t y . Sa l in i ty control can bes t be accomplished through be t t e r basinwide management of t o t a l water resources which considers trade-offs between projects for water resource development and s a l i n i t y controla

The s i g n i f i c a n t cost g rowth and l e n g t h y s c h e d u l e d e l a y s f o r t h e d e s a l t i n g complex and o t h e r r e l a t e d p r o j e c t s a u t h o r - i z e d by t i t l e I of t h e 1974 ac t a p p e a r to have made o t h e r a l t e r n a t i v e s more a t t r a c t i v e , a l t h o u g h t h e p rob lem o f r e p l a c - i n g t h e water los t o r d i v e r t e d o r compensa t i ng t h e S t a t e s f o r i ts loss w i l l have t o b e r e s o l v e d . W e b e l i e v e t h a t less c o s t l y a l t e r n a t i v e s t o s a t i s f y o u r Mexican w a t e r commitment s h o u l d b e r e c o n s i d e r e d .

We b e l i e v e t h e r e a r e some s e r i o u s q u e s t i o n s t h a t need t o be r e s o l v e d i n c o n s i d e r i n g t h e a l t e r n a t i v e s . Because o f t h e w i d e l y v a r y i n g i m p a c t s f o r t h e v a r i o u s a l t e r n a t i v e s , w e b e l i e v e i t i s v i t a l l y i m p o r t a n t f o r t h e Bureau t o have a c l e a r under- s t a n d i n g o f a l l t h e r e l e v a n t i n f o r m a t i o n . Only t h e n c a n t h e Bureau f u l l y e v a l u a t e e a c h a l t e r n a t i v e and d e t e r m i n e t h e mos t c o s t - e f f e c t i v e and b e n e f i c i a l s o l u t i o n . The U.S. o b l i g a t i o n to r e p l a c e t h e Wellton-Mohawk d r a i n a g e w a t e r i s o n e f a c t o r t h a t n e e d s c l a r i f i c a t i o n .

As p a r t o f c o n s i d e r i n g t h e b y p a s s a l t e r n a t i v e , w e b e l i e v e t h e Bureau s h o u l d a s k t h e Congre s s t o c l a r i f y t h e i n t e n t o f t h e 1974 S a l i n i t y C o n t r o l A c t c o n c e r n i n g when t h e n a t i o n a l o b l i g a t i o n b e g i n s a c c r u i n g f o r r e p l a c i n g t h e Wellton-Mohawk d r a i n a g e water. The t i m i n g o f when t h e U.S. o b l i g a t i o n b e g i n s a c c r u i n g c a n have a n i m p o r t a n t impac t on t h e b y p a s s a l t e r n a t i v e c o n s i d e r a t i o n . F o r example , i f t h e f u l l p r o v i s i o n s o f s e c t i o n 202 o f t h e 1968 Co lo rado R i v e r S t o r a g e Act a p p l y , t h e r e would be no F e d e r a l o b l i g a t i o n u n t i l t h e C o n g r e s s app roved t h e aug- m e n t a t i o n p l a n and i t was i n o p e r a t i o n . I f t h i s i n t e r p r e t a - t i o n is t h e o n e i n t e n d e d by t h e C o n g r e s s , t h e r e would be no F e d e r a l o b l i g a t i o n a c c r u i n g now and t h e r e would b e less u rgency t o c o n s t r u c t t h e Yuma d e s a l t i n g complex. Dur ing t h e r e c e n t h e a r i n g s , I n t e r i o r o f f i c i a l s c i t e d t h e c u r r e n t F e d e r a l o b l i g a t i o n a s o n e o f t h e p r i m a r y r e a s o n s f o r prompt a d o p t i o n o f t h e a d m i n i s t r a t i o n ' s p r o p o s a l t o i n c r e a s e t h e a u t h o r i z e d cost c e i l i n g f o r t h e Yuma complex. The s i g n i f i c a n t c o s t i n c r e a s e o f t h e Yuma complex, and t h e f a c t t h a t much less Wellton-Mohawk d r a i n a g e w a t e r t h a n i n i t i a l l y e s t i m a t e d would b e los t t o U.S. u s e r s , a r e a d d i t i o n a l f a c t o r s which i n d i c a t e t h e b y p a s s a l t e r n a t i v e s h o u l d be r e e v a l u a t e d .

I n a n y e v e n t , even i f t h e F e d e r a l o b l i g a t i o n i s now a c c r u i n g , i t c o u l d b e e r a s e d by 1985 i f t h e b a s i n r e s e r v o i r s r e a c h s t o r a g e c a p a c i t y a n d ' w a t e r r e l e a s e s are r e q u i r e d . Accord ing to a Bureau o f f i c i a l , t h i s c r e a t e s a s u r p l u s c o n d i - t i o n and any F e d e r a l d e b t a c c r u e d t o t h a t p o i n t would be wiped o u t . A s ment ioned on p . 1 2 , t h e Bureau a n t i c i p a t e s t h e r e w i l l be a s u r p l u s c o n d i t i o n p r i o r t o 1985 when i n i t i a l w a t e r d e l i v - e r ies a r e s c h e d u l e d t o b e g i n f o r t h e C e n t r a l A r i z o n a P r o j e c t .

RECOMMENDATIONS

We recommend t h a t t h e C o n g r e s s t e m p o r a r i l y defer F e d e r a l f u n d i n g f o r c o n s t r u c t i o n o f t h e

- -ups t ream s a l i n i t y c o n t r o l projects ( t i t l e I1 of t h e 1974 a c t ) u n t i l t h e Bureau d e v e l o p s a n a l t e r n a t i v e p l a n , inT/ 'ooperat ion w i t h t h e b a s i n S t a t e s , which compared t h e c o s t s and b e n e f i t s o f t h e many a l t e r n a - t i v e s ; a d d r e s s e s t h e s a l i n i t y p r o b l e m s i n a compre- h e n s i v e manner ; and r e s u l t s i n a n e f f e c t i v e and

& w^ ? # $ f q t t f t v * e f f i c i e n t b a s i n w i a program and he"- 7 --.- -- - - "m ~ - ~. I ;*

( f d I - f l ,

--Yuma Desa4ttn.g iomRlex u n t i l t h e b u h ~ h $ b v a l u - a t ' i i d i t s f e a s i b i l i t y and c o n s i d e r e d o t h e r v i a b l e and /or less c o s t l y a l t e r n a t i v e s .

A l s o , w e recommend t h a t t h e S e c r e t a r y o f t h e I n t e r i o r a s k t h e Congress_&Â c l a r i f y t h e i n t e n t o f t h e 1 9 7 4 S a l ~ n ~ t y C o n t r o l A c t c o n c e r n i n g when t h e n a t i o n a l o b l i g a t i o n f o r r e p l a c i n g t h e Wellton-Mohawk d r a i n a g e _wa,LeJ- b e g i n s t o a c c r u e .

. <,-/̂ - *, /"

AGENCY COMMENTS AND OUR EVALUATION /

Most o f t h e S t a t e and F e d e r a l a g e n c i e s commenting o n o u r report ,were opposed t o d e l a y i n g f u n d i n g f o r t h e b a s i n s a l i n i t y c o n t r o l p r o j e c t s . R a t h e r , t h e y b e l i e v e f u n d i n g s h o u l d b e e x p e d i t e d , p r i m a r i l y b e c a u s e o f t h e p o t e n t i a l loss o f water t o t h e b a s i n and t h e need t o meet a n a t i o n a l o b l i g a - t i o n f o r improv ing t h e q u a l i t y o f water t o Mexico. ( S e e a p p s . I X t h r o u g h XV.)

However, w e b e l i e v e t h e o v e r a l l i n t e r e s t s o f t h e b a s i n c a n b e b e s t s e r v e d by t e m p o r a r i l y d e l a y i n g c o n s t r u c t i o n f u n d i n g u n t i l a more comprehens ive s a l i n i t y c o n t r o l p rogram h a s b e e n d e v e l o p e d t o i d e n t i f y t h e most e f f i c i e n t and c o s t - e f f e c t i v e s a l i n i t y c o n t r o l m e a s u r e s f o r t h e b a s i n . The need t o r e d u c e b a s i n s a l i n i t y i s o b v i o u s b u t t h e u n c e r t a i n t i e s d i s c u s s e d o n p a g e s 4 1 t h r o u g h 43 i n d i c a t e t h e need f o r a new a s s e s s m e n t o f t h e o v e r a l l program. F u r t h e r m o r e , i n l i g h t o f t h e cost g r o w t h f o r t h e Yuma D e s a l t i n g Complex, we b e l i e v e t h a t o t h e r v i a b l e , less c o s t l y a l t e r n a t i v e s may e x i s t and s h o u l d b e f u l l y e v a l u a t e d b e f o r e p r o c e e d i n g w i t h c o n s t r u c t i o n .

I n summary, we b e l i e v e i t would n o t b e wise f o r t h e Bureau t o c o n t i n u e w i t h c o n s t r u c t i o n o f s a l i n i t y c o n t r o l p r o - jects u n t i l s u f f i c i e n t d e t a i l e d p r o j e c t s t u d i e s h a v e shown them t o b e t e c h n i c a l l y f e a s i b l e a n d c o s t - e f f e c t i v e . The Bureau h a s p o i n t e d o u t t h a t s u c h s t u d i e s were l a c k i n g a t t h e i n c e p t i o n o f t h e p rogram, wh ich h a s r e s u l t e d i n many p rog ram c h a n g e s . W e b e l i e v e t h e s e e a r l i e r p i t f a l l s s h o u l d n o t be

r e p e a t e d . The b e s t i n t e r e s t s o f t h e b a s i n , r e g i o n , a n d Nation w i l l b e s e r v e d by d e f e r r i n g c o n s t r u c t i o n u n t i l t h e more d e t a i l e d p l a n s a n d s t u d i e s h a v e b e e n c o m p l e t e d .

CHAPTER 4

NEW METHODS OF MANAGING THE B A S I N ' S WATER

RESOURCES ARE NEEDED

Tradit ional methods of managing the Colorado River Basin's water resources w i l l not e f fec t ive ly o r e f f i c i e n t l y solve the bas in ' s long-term water problems, a s discussed i n chapters 2 and 3. These problems, which a f f ec t the whole basin, have usually been addressed piecemeal, on a loca l o r S ta te basis.

There a re many examples i n the basin where Federal, S ta te , and loca l governments worked together t o provide solut ions t o local and some individual regional water problems. However, f o r the most pa r t , the Colorado River Basin's planning and management has been and continues t o be fragmented and c r i s i s oriented mainly because of the S t a t e s1 reluctance t o work together w i t h the Federal Government i n addressing the issues tha t concern the whole basin. For example, water planning and development have been oriented toward project construction ra ther than overa l l management of the bas in ' s water resources. T h i s construction provided water fo r i r r i ga t ion , municipal and indus t r ia l purposes, e tc . , t ha t stimulated economic development i n the basin b u t caused r ive r s a l i n i t y t o increase t o unacceptable levels . However, s a l i n i t y control projects were not proposed by the S ta tes u n t i l E P A 1 s s a l i n i t y standards threatened future water development projects .

I n our opinion, the problems discussed here and i n the previous chapters of t h i s report e i t h e r a re not being resolved o r proposed solut ions a r e not the most timely, e f fec t ive , o r economical. T h i s chapter discusses the overal l management improvements needed f o r e f f ec t ive resolut ion of these and other problems.

LACK OF REGIONAL AUTHORITY I N THE B A S I N HAS RESULTED I N INEFFECTIVE MANAGEMENT

One problem w i t h exis t ing management I/ methods i s the lack of a s ingle authori ty. t o plan fo r water resources development and address problems on an in te r re la ted , basinwide

l/By management we mean planning and operating the bas in ' s - water resources, including addressing a l l basinwide water resource problems.

b a s i s . Each o f t h e s e v e n b a s i n S t a t e s and t h e F e d e r a l a g e n c i e s o p e r a t e i n d e p e n d e n t l y , a t t e m p t i n g t o a c h i e v e s o l u - t i o n s t h a t a r e b e s t f o r them. Each h a s d i f f e r e n t management o b j e c t i v e s and r e s p o n s i b i l i t i e s c o n c e r n i n g t h e b a s i n . C u r r e n t l y , n o c e n t r a l a u t h o r i t y r e p r e s e n t i n g b o t h S t a t e and F e d e r a l i n t e r e s t s exists t o f o r m u l a t e and c a r r y o u t p l a n s t o meet t h e compet ing w a t e r n e e d s o f t h e S t a t e s and t h e F e d e r a l Government.

S t a t e and F e d e r a l o b j e c t i v e s o f t e n c o n f l i c t

Water r e s o u r c e p l a n n i n g and deve lopmen t i n t h e b a s i n g e n e r a l l y h a s been o r i e n t e d t o i n d i v i d u a l p r o j e c t c o n s t r u c - t i o n r a t h e r t h a n comprehens ive management o f t h e r e g i o n ' s w a t e r r e s o u r c e s . N o n s t r u c t u r a l m e a s u r e s g e n e r a l l y h a v e n o t b e e n c o n s i d e r e d , and w a t e r p rob l ems are b e i n g s o l v e d o n l y when a c r i s i s d e v e l o p s . T h i s p r a c t i c e o f t e n r e s u l t s i n s o l v i n g o n e prob lem w h i l e c r e a t i n g a n o t h e r and is c e r t a i n l y n o t t h e most e f f e c t i v e and economica l way t o p l a n p rog rams and p r o j e c t s . Fo r example , a p rogram t o d e v e l o p w a t e r p ro - jec ts h a s g r e a t l y i n c r e a s e d t h e s a l i n i t y o f downstream w a t e r , which i n t u r n h a s l e d t o t h e need f o r v e r y e x p e n s i v e s a l i n i t y c o n t r o l p r o j e c t s t o meet n a t i o n a l and i n t e r n a t i o n a l w a t e r q u a l i t y r e q u i r e m e n t s . The r u s h t o s o l v e t h e s a l i n i t y p rob l em a p p e a r s t o b e r e s u l t i n g i n p r o j e c t s which w i l l h a v e , a t b e s t , m a r g i n a l impac t o n s a l i n i t y c o n t r o l .

The F e d e r a l Government ' s role i s d i v i d e d among v a r i o u s a g e n c i e s i n v o l v e d i n p l a n n i n g , c o n s t r u c t i n g , and o p e r a t i n g w a t e r deve lopmen t , f l o o d c o n t r o l , and d e s a l i n a t i o n p r o j e c t s and i n p r o t e c t i n g I n d i a n r i g h t s , w a t e r q u a l i t y , and t h e n a t u r a l env i ronmen t . F e d e r a l o b j e c t i v e s and r e s p o n s i b i l i t i e s f o r w a t e r i n t h e b a s i n i n c l u d e t h e r e g i o n a l g o a l s of deve lop - i n g and u s i n g w a t e r r e s o u r c e s f o r economic p r o f i t ; m e e t i n g n a t i o n a l n e e d s , s u c h a s e n e r g y p r o d u c t i o n ; and a d h e r i n g t o i n t e r n a t i o n a l commitments.

The Depar tment o f t h e I n t e r i o r , p r i m a r i l y t h r o u g h t h e Bureau o f Rec l ama t ion , h a s t h e l a r g e s t F e d e r a l w a t e r p l a n n i n g and management r e s p o n s i b i l i t y . The Bureau h a s c o n c e n t r a t e d on p l a n n i n g , c o n s t r u c t i n g , and o p e r a t i n g i n d i v i d u a l water s t o r a g e , f l o o d c o n t r o l , and a g r i c u l t u r a l deve lopmen t p r o j e c t s . The Env i ronmen ta l P r o t e c t i o n Agency h a s t h e p r i m a r y r e s p o n - s i b i l i t y f o r s e t t i n g w a t e r q u a l i t y s t a n d a r d s .

Each S t a t e h a s i t s own w a t e r management s y s t e m , w i t h i n t r a s t a t e a s well a s b a s i n w i d e p rob l ems . S t a t e w a t e r a g e n c i e s have b e e n r e s p o n s i b l e f o r a d m i n i s t e r i n g w a t e r r i g h t and g round w a t e r l a w s , p l a n n i n g f o r deve lopmen t and d i s t r i b u t i o n o f w a t e r r e s o u r c e s , m e e t i n g w a t e r n e e d s

of loca l areas, and obtaining Federal pa r t i c ipa t ion i n financing S ta te water projects . The S ta tes a r e concerned w i t h obtaining and putt ing t h e i r water ent i t lements t o use, obtaining water of adequate qua l i ty and quanti ty t o meet t h e i r needs, and providing water f o r fu ture development i n the Sta te . S ta te object ives, such a s development, sometimes con f l i c t w i t h Federal object ives, such a s f i s h and wi ld l i f e protect ion.

Although management respons ib i l i t i e s have been divided among the individual S ta tes and the Federal agencies, some basinwide organizations have been formed t o consider spec i f i c issues. For example, one of the pr incipal a c t i v i t i e s of the Upper Colorado River Commission i s t o a s s i s t i n securing Federal appropriations fo r projec t s tud ies and development. Also, the basin S ta tes established the Colorado River Basin Sa l in i t y Control Forum t o formulate standards and an implementation program fo r control l ing s a l i n i t y i n the r ive r . However, ne i ther of these organizations i s responsible f o r addressing a l l water resources problems and issues i n the basin nor has author i ty o r resources t o implement t h e i r plans.

Unresolved conf l i c t s continue

Current management organizations i n the basin do not provide an adequate mechanism fo r solving i n t e r s t a t e disputes. The Upper and Lower Basin S ta tes have h i s to r i ca l l y been i n con f l i c t over water a l locat ions and development p r i o r i t i e s . Development projec ts change the environment, and many environmental is ts a r e opposed t o any deve lopment~ thus con f l i c t s between environmentalists and project supporters a r i s e . The 1 9 2 2 Colorado River Compact, subsequent l eg i s l a t i on , and court act ions have not e n t i r e l y resolved these con f l i c t s , nor i s there a concerted e f f o r t t o resolve the con f l i c t s now. For example, the two sub-basins disagree over how the major s torage reservoirs should be operated and the amount of Upper Basin water storage considered su f f i c i en t t o meet fu ture re leases t o the Lower Basin while meeting Upper Basin needs. (See pp. 10 and 18.) Other c r i t i c a l b u t unresolved issues are :

--Which bas in ' s water can be considered surplus and what i s each bas in ' s obl igat ion i n supplying water t o Mexico?

-Should higher p r i o r i t y be given t o water development o r s a l i n i t y control projects?

-How much water m u s t be maintained f o r instream flow u s e s and where i s i t going t o come from?

S t u d i e s c i t e u n r e s o l v e d p r o b l e m s

S t u d i e s b y o t h e r g r o u p s h a v e i d e n t i f i e d o t h e r a r e a s which were n o t a d e q u a t e l y a d d r e s s e d u n d e r e x i s t i n g management a r r a n g e m e n t s , i n c l u d i n g t h e f o l l o w i n g .

--Many I n d i a n t r i b e s i n t h e b a s i n h a v e a s y e t un- q u a n t i f i e d r i g h t s t o t h e water i n t h e C o l o r a d o R i v e r , a n d t h e i r p u r s u i t o f water d e v e l o p m e n t c o u l d h a v e i m p o r t a n t i m p l i c a t i o n s f o r b o t h w a t e r d e v e l o p m e n t a n d water q u a l i t y p r o g r a m s .

--There i s a p o t e n t i a l c o n f l i c t o v e r w h i c h S t a t e ' s a p p o r t i o n m e n t o f C o l o r a d o R i v e r water s h o u l d b e c h a r g e d f o r t h e w a t e r consumed by f e d e r a l l y c o n s t r u c t e d s a l i n i t y c o n t r o l p r o j e c t s .

T i m e l y r e s o l u t i o n t o water p r o b l e m s and c o n f 1 i c ts needed

The b a s i n S t a t e s and t h e B u r e a u h a v e t r a d i t i o n a l l y w a i t e d u n t i l a water p r o b l e m became a crisis o r a n i n t e r s t a t e con- f l i c t w a s s e t t l e d b y t h e c o u r t s b e f o r e t a k i n g a c t i o n s t o r e s o l v e t h e s i t u a t i o n . T h i s h a s r e s u l t e d , i n some cases, i n c o s t l y and i n e f f e c t i v e F e d e r a l p r o g r a m s , l e n g t h y c o u r t p r o c e e d - i n g s , a n d i n c r e a s i n g i n t e r r e l a t e d p r o b l e m s . F o r e x a m p l e , f a i l u r e o f t h e Lower B a s i n S t a t e s t o a g r e e o n how t h e water a l l o c a t e d t o t h e n b y t h e 1 9 2 2 c o m p a c t would be s h a r e d r e s u l t e d i n a l e n g t h y c o u r t b a t t l e which d e l a y e d w a t e r d e v e l o p m e n t f o r s e v e r a l y e a r s . C o n f l i c t s b e t w e e n t h e Lower B a s i n S t a t e s l e d t o a Supreme C o u r t s u i t f i l e d b y A r i z o n a i n 1952 . T h i s s u i t was n o t s e t t l e d u n t i l 1964 b y t h e A r i z o n a v . C a l i f o r n i a d e c r e e .

I n some c a s e s water management g r o u p s a r e a l s o d e l a y i n g a c t i o n s t o r e s o l v e c u r r e n t p r o b l e m s a n d c o n f l i c t s . T h e s e d e l a y s c o u l d l e a d t o more c o s t l y a n d less e f f e c t i v e p r o g r a m s . A f u r t h e r c o m p l i c a t i o n i s t h a t i t t a k e s 3 0 y e a r s a n d l o n g e r t o p l a n and c o n s t r u c t a w a t e r r e s o u r c e s t o r a g e o r d i s t r i b u t i o n f a c i l i t y ,

INTERIOR AND OTHERS HAVE RECOGNIZED THE NEED FOR CHANGES I N MANAGEMENT

The Depar tment o f t h e I n t e r i o r r e c e n t l y s t r e s s e d t h e n e e d t o reassess p r e s e n t management m e t h o d s . The A s s i s t a n t s e c r e t a r y , Land and W a t e r R e s o u r c e s , i n a n A p r i l 11, 1 9 7 7 , l e t t e r t o t h e Commiss ioner o f R e c l a m a t i o n s a i d :

'Generally, grea ter emphasis, wherever p rac t i ca l should be placed on Bureau programs which s t r e s s t o t a l water management, the evaluation of diverse a l t e rna t ives t o major water storage and long distance water t r ans fe r projec ts , technical ass is tance t o users t o help them increase water use ef f ic iency, and water conservation pract ices .I1 (Underscoring added. )

"Total water management" is a term used t o describe a system of managing water resources t h a t in tegra tes a l l aspects of water development, including water qua l i ty , quanti ty, and environmental concerns. The concept encourages a l l loca l , S t a t e , regional, and national e n t i t i e s involved i n the basin 's water management t o work c losely together. Under t h i s concept water management plans would include, among other things,

-the a b i l i t y of exis t ing and planned projec ts t o meet present and fu ture needs;

- t h e basinwide impacts of water development p ro jec t s on water qua l i ty , water a v a i l a b i l i t y ? and the environment;

--conservation and more e f f i c i e n t water use;

--coordinated scheduling and operation of a l l r i ve r basin storage and control works;

--a f u l l range of s t ruc tu ra l and nonstructural a l - te rnat ives t o accomplish object ives of the whole basin;

- u s e of surface and ground waters a s an integrated supply; and

- s a lvage and reclamation of poor qua l i ty supplies , including desal inat ion of brackish water.

Total water management s t u d y

In July 1977 the Bureau developed an ou t l ine f o r studying the concept of t o t a l water management i n the basin. The study was t o be a systematic evaluation of the exis t ing and poten- t i a l management system, covering a 30-month period, and was t o be funded under the Colorado River Water Qual i ty Improvement Program. The Bureau's study was intended t o

--identify and analyze the changing needs of the r i v e r basin:

--examine t h e u s e o f t h e b a s i n ' s w a t e r r e s o u r c e s t o see i f e x i s t i n g on fa rm p r a c t i c e s , r e s e r v o i r o p e r a t i o n s , and s t r u c t u r e s c o u l d b e m o d i f i e d t o a c h i e v e b e t t e r management; and

- - e x p l o r e a l t e r n a t i v e means o f e v a l u a t i n g c h a n g i n g r i v e r c o n d i t i o n s and w a t e r n e e d s .

The s t u d y o u t l i n e was r e v i e w e d by r e p r e s e n t a t i v e s f rom t h e s e v e n b a s i n S t a t e s . They o b j e c t e d t o t h e c o n c e p t o f t o t a l water management, t h e s t u d y ' s f u n d i n g u n d e r t h e C o l o r a d o R i v e r Water Qua1 i t y Improvement Program, and con- t i n u a t i o n o f t h e s t u d y . I n e f f e c t , t h e y s a i d t h a t t o t a l w a t e r management i n v o l v e s l ess S t a t e c o n t r o l and t h a t t h e r i v e r i s n o t t o b e o p e r a t e d and managed f o r t h e b e n e f i t o f t h e N a t i o n o r e v e n t h e b a s i n a s a whole . R a t h e r , t h e y c o n t e n d e d t h a t t h e r i v e r s h o u l d b e managed by and f o r t h e s e v e n S t a t e s i n d i v i d u a l l y . To d a t e , t h e s t u d y h a s n o t been f u n d e d .

S t a t e v i ews o n management methods

I n r e g a r d t o new w a t e r r e s o u r c e s management me thods , S e n a t o r H a r t o f C o l o r a d o s t a t e d t h e f o l l o w i n g i n a c o n f e r - e n c e a t t h e U n i v e r s i t y o f Denver C o l l e g e o f Law i n 1976 . &/

F

"Water r e s o u r c e management h a s s h i f t e d f rom t h e deve lopmen t o f new s u p p l i e s t o t h i s k i n d o f p r u d e n t management o f e x i s t i n g s u p p l i e s and t h e a l l o c a t i o n o f t h e s e s u p p l i e s among compe t ing u s e s . T e c h n o l o g i c a l i n n o v a t i o n m u s t a c h i e v e t h e b a l a n c e be tween t h e t r a d i t i o n a l demand t h a t w e a r e a l l f a m i l i a r w i t h and t h e s e new u s e s . The p l a n n i n g p r o c e s s t h a t h a s s e r v e d u n t i l r e c e n t l y w i l l h ave t o b e o v e r h a u l e d ; t h e p l a n n e r s and p o l i c y make r s w i l l h ave t o r e o r d e r w a t e r p r i o r i t i e s i n t h e i r s t a t e s and l o c a l r e g i o n s t o accommodate t h e new f a c t s o f r e s o u r c e l i f e . As a p a r t o f t h i s new f o c u s , e n g i n e e r s and t e c h n i c i a n s m u s t d e v i s e means t o manage w a t e r r e s o u r c e s more e f f i c i e n t l y and e f f e c t i v e l y . They w i l l b e t h e o n e s who w i l l p r e s e n t t h e a l t e r n a t i v e s t o t h e p o l i t i c i a n s who have t h e u l t i m a t e r e s p o n s i b i l i t y t o d e t e r m i n e wha t n e e d s mus t b e met . "

l / H a r t , Garyr1 'Emerg inq V a l u e s i n Wate r R e s o u r c e - ~ a n a g e m e n t , " Denver J o u r n a l of I n t e r n a t i o n a l Law - and P o l i c y , V o l . 6 , S p e c i a l I s s u e 1976 , pp. 357-361.

During the sane conference, Governor Lann of Colorado s t a t e d :

"* * * i t seems c l e a r t o ne t h a t we a re i n a t r a n s i t i o n period moving from t h e developnent and s torage of water t o a period w h i c h w i l l be c o n f l i c t s between the a g r i c u l t u r a l uses of water and municipal, i n d u s t r i a l , r ec rea t iona l , and o t h e r environmental uses. We w i l l not be as preoccupied w i t h t he developnent o f new water supp l i e s a s we have been i n the pas t . " I/

S t a t e o f f i c i a l s we contacted objected t o the concept of t o t a l system nanaqenent l a r g e l y because they f e a r t h a t t h e i r i n t e r e s t s , r i g h t s , and ob jec t ives w i l l not be protected. S t a t e water o f f i c i a l s have claimed t h a t t h e r i v e r i s a S t a t e matter and not t o be operated f o r the benef i t of t h e basin a s a whole o r the Nation. The basin S t a t e s do not be l ieve s u f f i c i e n t incent ives a r e ava i l ab le t o cause then t o nanaqe t h e i r water resources on a basinwide b a s i s because they f ee l they may be required t o g ive u p t h e i r c o n s t i t u t i o n a l riqhts.

CONCLUSIONS

The b a s i n ' s water managers a r e not enphasizinq reso lu t ion of many of 'the c o n f l i c t s and s t i l l address many problens a f t e r they become a c r i s i s . The adverse inpacts of not addressinq these c o n f l i c t s and o t h e r problems i n a t imely nanner w i l l be more severe , however because of the inpendinq shortage. The f u l l impact of c r i s i s nanaqement has never been f e l t because a water shortage has not occurred. The 1976-77 d r o u q h t was not a c r i s i s because water r e l e a s e s were nade f ron s torage i n the r e se rvo i r s . However, when the b a s i n ' s resources a r e f u l l y developed, such l a r g e suppl ies from rese rvo i r s torage may not be ava i l ab le . The lonq-tern s o l u t i o n s t h a t consider a l l a l t e r n a t i v e s w i l l be inpossible i f t h e b a s i n ' s water managers wait u n t i l a shortaqe occurs.

We bel ieve t h a t t h e t r a d i t i o n a l nethods of manaqinq the b a s i n ' s water resources w i l l no longer be e f f e c t i v e o r responsive t o i t s needs. The basin S t a t e s and Federal agencies need t o be btought together under a par tnersh ip arrangement t o solve t h e problems and c o n f l i c t s discussed i n t h i s r epor t t o prepare f o r the projected shortage. There

l/Lamn, Richard D., "Colorado, Water, and ~ l a n n i n q f o r -. t h e Future," Denver Journal of In te rna t iona l Law and pol icy, Vol. 6 , Special Issue 1976, pp. 441 -447 .

a p p e a r s t o b e enough t i m e t o p r e p a r e e f f e c t i v e l y f o r a s h o r t a g e i f t h e S t a t e s and F e d e r a l a g e n c i e s r e s o l v e t h e i r d i f f e r e n c e s and p l a n t h e r e s o l u t i o n o f a l l w a t e r - r e l a t e d p rob l ems soon .

I f h i s t o r i c a l t r e n d s r e l a t i n g t o t h e time it t a k e s t o a c h i e v e c o n s e n s u s , f u n d i n g , and c o n s t r u c t i o n o f r e s o u r c e p r o j e c t s a re a f a i r i n d i c a t i o n o f f u t u r e l e a d t i m e r e q u i r e - m e n t s , l ong - t e rm r e s o l u t i o n s t o t h e s u p p l y and s a l i n i t y p rob l ems mus t b e a g r e e d o n w i t h i n t h e n e x t 2 t o 3 y e a r s . Long-term e f f e c t i v e s o l u t i o n s n a y n o l o n g e r b e p o s s i b l e a f t e r a s h o r t a g e o c c u r s .

We b e l i e v e t h a t t h e u n r e s o l v e d p rob l ems and c o n f l i c t s d i s c u s s e d i n t h i s r e p o r t a r e b a s i n w i d e i n s c o p e and i n d i c a t e a need f o r some form o f b a s i n w i d e p l a n n i n g and management. A c e n t r a l p l a n n i n g a u t h o r i t y , a c c e p t a b l e t o t h e F e d e r a l Government and S t a t e s , is needed t o i n t e g r a t e S t a t e and F e d e r a l o b j e c t i v e s f o r comprehens ive management o f t h e b a s i n ' s water resources.

S e v e r a l i s s u e s w i l l h ave t o b e c o n s i d e r e d i n s e t t i n g u p t h i s o r g a n i z a t i o n , s u c h a s t h e S t a t e s ' i n t e r e s t s and o b j e c t i v e s , F e d e r a l p o l i c i e s and l a w s , t h e method o f d e c i d i n g on a l t e r n a t i v e a p p r o a c h e s t o s o l v e p rob l ems , and t h e most e f f i c i e n t method f o r s o l v i n g d i s p u t e s . T h i s o r g a n i z a t i o n would

- - i n t e q r a t e and c o o r d i n a t e t h e v a r i o u s F e d e r a l , S t a t e , and l o c a l a g e n c i e s i n v o l v e d i n p l a n n i n g , d e v e l o p i n g , and o p e r a t i n g b a s i n w a t e r r e s o u r c e s ;

- - e v a l u a t e t h e i n t e r r e l a t i o n s h i p s , b e n e f i t s , and c o s t s o f a l t e r n a t i v e s o l u t i o n s t o w a t e r p r o b l e m s , c o n s i d e r i n g s u c h f a c t o r s a s w a t e r q u a l i t y , w a t e r a v a i l a b i l i t y , c o n s e r v a t i o n , and t h e env i ronmen t ; and

- c o n s i d e r a l l w a t e r r e s o u r c e s i n t h e b a s i n a s a t o t a l sy s t em.

RECOMMENDATIONS TO THE CONGRESS

F o r m u l a t i o n and makeup o f a n o r g a n i z a t i o n o f t h e t y p e d i s c u s s e d above i s a n e x t r e m e l y s e n s i t i v e i s s u e , p o l i t i c a l l y , l e g a l l y , and e c o n o m i c a l l y . The o r g a n i z a t i o n mus t h a v e enough a u t h o r i t y t o a s s u r e t h a t t h e i n t e r e s t s o f a l l p a r t i e s are e q u a l l y p r o t e c t e d w i t h o u t i n d i s c r i m i n a t e l y f a v o r i n g t h e w i s h e s o f o n e o v e r t h e o t h e r s . T h e r e f o r e , we recommend t h a t t h e Congre s s e s t a b l i s h a t a s k f o r c e made up o f t h e p r i n c i p a l S t a t e and F e d e r a l e x e c u t i v e a g e n c i e s i n t h e b a s i n and w a t e r u s e r r e p r e s e n t a t i v e s t o s t u d y t h e p rob l ems and b a r r i e r s i

involved i n forming such an organization and recommend the appropriate form of management and decisionmaking s t ruc tu re fo r the basin and t h e rules and regulations under which i t w i l l operate.

Among the options t h i s task force might consider a r e an organization composed of

--only S ta te representat ives,

--representatives from each S ta te and selected Federal agencies t h a t a r e interested i n the bas in ' s water problems w i t h a ro ta t ing o r elected chairman,

--State and Federal representat ives w i t h a Federal chairman.

AGENCY COMMENTS AND OUR EVALUATION

In a January 8, 1979, l e t t e r ( see app. V I I I ) , I n t e r io r did not object t o the recommendations b u t sa id t h a t the concept of t o t a l water management i n the r i v e r basin has been presented t o the S ta tes before; it has always been re jec ted . I n t e r io r believes t h a t there i s a need t o quantify the bene- f i t s t o the S ta tes and Nation a t t r i bu t ab l e t o basinwide management, otherwise lack of cooperation from es sen t i a l pa r t i e s could thwart needed management e f f o r t s . Also, I n t e r io r believes t h a t an atmosphere conducive t o reaching basic agreements w i l l e x i s t f o r only a few more years and now is a n ideal time t o seek resolut ion of unsettled i ssues ,

I n a January 2 , 1979, l e t t e r ( see app. IX), EPA f e l t t h a t strengthening, w i t h possible redi rec t ion, of exis t ing Colorado River Basin e n t i t i e s would have a g rea te r payoff a t t h i s time than would creat ion of a new en t i t y .

The basin Sta tes object t o es tabl ishing a basinwide management organization. Their objections a r e based on a f ea r t h a t the r i ve r w i l l be operated i n the nat ional i n t e r e s t s f i r s t and the S ta tes ' i n t e r e s t s second. The Sta tes fea r t ha t the compact w i l l be upset, t h a t h i s t o r i c a l water r i gh t s w i l l be changed, and t h a t S ta tes ' author i ty w i l l d i m i n i s h . They i n s i s t t h a t the compact cannot be a l t e red and t h a t the present methods of management a re su f f i c i en t t o deal w i t h the r i v e r ' s problems. I n summary, the S ta tes do not see a need f o r change. (See apps. X I through XV. )

E x i s t i n g b a s i n w i d e e n t i t i e s h a v e t e n d e d t o f o c u s o n i n d i v i d u a l i s s u e s , s u c h a s s a l i n i t y , r a t h e r t h a n on a l l t h e i s s u e s encompass ing s u p p l y , q u a l i t y , w a t e r r i g h t s , and so f o r t h . S imply , s t r e n g t h e n i n g and r e d i r e c t i n g e x i s t i n g e n t i t i e s , w i t h o u t g i v i n g them a d d i t i o n a l a u t h o r i t y and r e s p o n s i b i l i t y f o r p e r f o r m i n g comprehens ive b a s i n w i d e p l a n n i n g and management, is l i k e l y t o p r o v i d e o n l y s h o r t - t e r m b e n e f i t s , a t b e s t .

T h e r e was o n e p o i n t o f a g r e e m e n t among t h e S t a t e s and F e d e r a l a g e n c i e s t h a t commented o n o u r d r a f t r e p o r t . They a l l s t a t e d t h a t a t a s k f o r c e s u c h a s t h e o n e w e recommend would b e t o t a l l y i n e f f e c t i v e b e c a u s e i t would b e made up o f t h e same p e o p l e and o r g a n i z a t i o n s t h a t have t r a d i t i o n a l l y managed t h e b a s i n ' s water. The f e e l i n g is t h a t , b e c a u s e o f t h e i r i n d i v i d u a l v i e w s , t h e s e p a r t i e s would be u n a b l e t o a c h i e v e a n y s o r t o f m e a n i n g f u l c o n s e n s u s .

W e a g r e e t h a t a d i s t i n c t p o s s i b i l i t y e x i s t s t h a t t h e t a s k f o r c e may n o t b e a b l e t o a g r e e on a p r o p o s a l . W e b e l i e v e , however, t h a t s u c h a p o s s i b i l i t y i s less l i k e l y i f t h e t a s k f o r c e i s e s t a b l i s h e d by t h e Congre s s . A s t r o n g c o n g r e s s i o n a l e x p r e s s i o n o f p r e f e r r i n g a management s o l u t i o n a r r i v e d a t by t h e t a s k f o r c e , a s opposed t o o n e imposed by c o n g r e s s i o n a l a c t i o n , c o u l d p r o v i d e s u f f i c i e n t i n c e n t i v e t o a c h i e v e t h e n e c e s s a r y c o o p e r a t i o n . We b e l i e v e t h i s p o s s i b i l i t y would b e a s t r o n g m o t i v a t i o n t o t a s k f o r c e p a r t i c i p a n t s t o c o o p e r a t e .

W e c o n t i n u e t o b e l i e v e t h a t a f o r m a l o r q a n i z a t i o n w i t h a u t h o r i t y t o manage t h e r i v e r i n t h e b e s t i n t e r e s t s o f t h e S t a t e s , t h e r e g i o n , and t h e N a t i o n i s needed . E s t a b l i s h m e n t o f s u c h a n e n t i t y s h o u l d l e a d t o more e f f e c t i v e s o l u t i o n s t o e x i s t i n g w a t e r c o n c e r n s and r e spond better t o f u t u r e p rob lems . A s i n d i c a t e d i n o u r recommendat ions , w e b e l i e v e t h a t t h e t a s k f o r c e s h o u l d s p e c i f y t h e makeup and n a t u r e o f t h e o r g a n i z a t i o n . However, t h i s s h o u l d b e done a f t e r c a r e f u l c o n s i d e r a t i o n o f a l l t h e w a t e r r e s o u r c e p rob l ems and i s s u e s i n t h e b a s i n . T h i s would i n c l u d e i d e n t i f y i n g b e n e f i t s and d i s b e n e f i t s so t h a t t h e mos t e f f e c t i v e and a c c e p t a b l e o r g a n i z a t i o n c o u l d b e c h o s e n . F u r t h e r m o r e , we a g r e e w i t h I n t e r i o r ' s s t a t e m e n t t h a t a n a t m o s p h e r e c o n d u c i v e t o r e a c h i n g b a s i c a g r e e m e n t s w i l l o n l y e x i s t fo r a few more y e a r s and. now i s a n i d e a l time t o s e e k r e s o l u t i o n o f u n s e t t l e d i s s u e s .

APPENDIX I APPENDIX I

SELECTED LEGISLATION, COMPACTS, TREATIES,

AGREEMENTS, AMD COURT DECREES AFFECTING

THE OPERATIONS OF THE COLORADO RIVER

There are many laws, compacts, treaties, agreements, and court decrees that impact on the management and use of? water resources in the Colorado River Basin. We briefly summarized the significant points in some of these below.

ftd COLORADO RIVER COMPACT, 1922

This compact was signed by the seven Colorado River Basin States November 24, 1922. The compact:

-Divided the Colorado River Basin into an Upper and Lower Basin. The dividing point is at Lee Ferry, approximately 30 river miles below the Utah-Arizona boundary line and 1 mile below the mouth of the Paria River. The Upper Basin States include Colorado, New Mexico, Utah, and Wyoming, while the Lower Basin States are Arizona, California, and Nevada.

--Apportioned from the Colorado River System, in per- petuity, 7.5 maf per year to each of the two sub-basins for beneficial consumptive use. In addition, the Lower Basin was given the right to increase its beneficial consumptive use by 1 rnaf per year.

--Provided for the possibility of a water treaty with Mexico. Delivery of water to Mexico would be supplied from surplus flows above the aggregate quantities specified above, and when there is insufficient surplus flows to meet the Mexican water obligation the deficiency would be borne equally by the Upper and Lower Basins.

-Provided that the Upper Basin shall not withhold water or cause the flow of the river at Lee Ferry to be depleted below an aggregate of 75 maf in any 10-consecutive-year period and the Lower Basin shall not require delivery of water which cannot reasonably be applied to domestic and agricultural uses.

BOULDER CANYON PROJECT ACT, 1928 (43 U.S.C. 617)

This act authorized the construction of Hoover Dam and Powerplant, the all-American canal system serving the Imperial and Coachella Valleys in California, and approved


t h e C o l o r a d o R i v e r Compact. None o f t h e p r o v i s i o n s i n t h i s a c t were t o t a k e e f f e c t u n l e s s (1) t h e compac t was r a t i f i e d by a t l e a s t s i x S t a t e s i n c l u d i n g C a l i f o r n i a and ( 2 ) C a l i f o r n i a would l i m i t i t s consumpt ive u s e o f C o l o r a d o R i v e r w a t e r t o 4 . 4 maÂ p e r y e a r p l u s n o t more t h a n o n e - h a l f o f a n y e x c e s s o r s u r p l u s w a t e r . ( T h e s e r e q u i r e m e n t s were s u b s e q u e n t l y met.)

The a c t a u t h o r i z e d t h e S t a t e s o f A r i z o n a , C a l i f o r n i a , and Nevada t o e n t e r i n t o a n ag reemen t whereby t h e 7 .5 maÂ o f ma ins t r eam water would b e a p p o r t i o n e d f o r a n n u a l u s e by t h e L o w e r B a s i n a s f o l l o w s :

(maÂ£ C a l i f o r n i a 4.4 A r i z o n a 2.8 Nevada 0 . 3

However, t h e s e S t a t e s n e v e r e n t e r e d i n t o a n ag reemen t d i v i d i n g t h e Lower B a s i n w a t e r .

The a c t a l s o p r o v i d e d t h a t t h e Lower B a s i n S t a t e s w i l l s h a r e s u r p l u s water and a u t h o r i z e d t h e S e c r e t a r y o f t h e I n t e r i o r t o e x e c u t e c o n t r a c t s w i t h u s e r s f o r w a t e r made a v a i l a b l e by t h e Bou lde r Canyon P r o j e c t , s u b j e c t t o t h e terms o f t h e C o l o r a d o R i v e r Compact.

MEXICAN WATER TREATY, 1944

I n 1 9 4 1 t h e S t a t e Depar tment u n d e r t o o k n e g o t i a t i o n s w i t h Mexico f o r a t r e a t y t o encompass t h e T i j u a n a R i v e r , t h e R i o Grande R i v e r where a s i g n i f i c a n t p o r t i o n o f t h e w a t e r o r i g i - n a t e s i n Mexico b u t i s l a r g e l y u s e d i n t h e Un i t ed S t a t e s , and t h e C o l o r a d o R i v e r where a l l t h e w a t e r o r i g i n a t e s i n t h e Un i t ed S t a t e s b u t is used i n b o t h t h e U n i t e d S t a t e s and Mexico. The t r e a t y d i v i d e d t h e w a t e r s o f t h e C o l o r a d o , T i j u a n a , and R i o Grande R i v e r s and was t o b e a d m i n i s t e r e d by t h e I n t e r n a - t i o n a l Boundary and Water Commission, which c o n s i s t e d o f a U.S. s e c t i o n and a Mexican s e c t i o n . N o m e n t i o n was made o f t h e q u a l i t y o f w a t e r t o b e d e l i v e r e d .

Under t h e Mexican Water T r e a t y , t h e Un i t ed S t a t e s is o b l i g e d t o d e l i v e r 1 . 5 raaf t o Mexico a n n u a l l y i n t h e l i m i t r o p h e s e c t i o n o f t h e C o l o r a d o R i v e r ( t h a t s t r e t c h where t h e C o l o r a d o R i v e r is t h e boundary between t h e Un i t ed S t a t e s and Mexico) and some a d d i t i o n a l q u a n t i t i e s i f a v a i l a b l e . However, i n cases o f s e r i o u s d r o u g h t o r a s i g n i f i c a n t f a i l u r e i n t h e d e l i v e r y s y s t e m , Mexico c o u l d r e c e i v e l e s s t h a n 1 . 5 maÂ£

APPENDIX I

UPPER COLORADO RIVER BASIN COMPACT, 1948

T h i s compact among t h e S ta tes of Arizona, Colorado, New Mexico, Utah, and Wyoming apportions t h e Upper Basin's share of the Colorado River on t h e bas is of consumptive use.

The S ta te of Arizona was apportioned 50,000 acre-feet of the Upper Basin's annual a l locat ion and t h e o ther basin S t a t e s were apportioned the following percentages of the remainder:

(percent) Colorado 51.75 New Mexico 11.25

23.00 Utah Wyoming 14.00

COLORADO R I V E R STORAGE PROJECT ACT, 1956

T h i s a c t ( 4 3 U.S.C. 620) authorized the construction of major developments i n t h e Upper Basin consist ing i n i t i a l l y of .

four major storage u n i t s and 11 par t ic ipat ing water use projec ts . Operations of these projec ts w i l l permit the Upper Basin t o make required de l ive r ies of water t o t h e Lower Basin and t o maximize t h e consumptive use of i t s water a l locat ion. A number of other water use projec ts were authorized by subsequent l eg i s la t ion . These f a c i l i t i e s a r e located throughout the Upper Basin.

DECREE OF THE SUPREME COURT I N ARIZONA v. CALIFORNIA, 376 U.S. 340 (1964)

Fai lure of the Lower Basin S ta tes t o agree on the sharing of water al located by t h e Colorado River Compact l e d t o the Supreme Court s u i t f i l e d by Arizona i n 1952. The Court held t ha t nei ther the Colorado River Compact, nor the law of p r io r appropriation, nor the doctr ine of equitable apportionment controlled the d ivis ion of Lower Basin water among t h e S ta tes , but t h a t the Boulder Canyon Project A c t authorized an apportionment of the Lower Colorado River and, hence, m u s t be used a s a guide.

The apportionment of Lower Basin water was r e s t r i c t ed t o the mainstream of the Colorado River downstream from Lee Ferry. The Court held t h a t . i f 7.5 million acre-feet of mainstream water is avai lable fo r annual consumptive use i n the Lower Basin, i t s h a l l be apportioned a s follows:

(maf) 4 . 4 t o California 2.8 t o Arizona 0.3 t o Nevada


The d e c r e e a l s o i n c l u d e d p r o v i s i o n s f o r t h e a p p o r t i o n m e n t o f ma ins t r eam water t o Lower B a s i n S t a t e s i n times when t h e amount o f water a v a i l a b l e t o t h e Lower B a s i n would b e more or l e s s t h a n 7.5 maÂ£ The f i v e I n d i a n r e s e r v a t i o n s a l o n g t h e ma ins t r eam were g i v e n p r i o r i t y f o r w a t e r ( a b o u t 1 maÂ£) d a t i n g from t h e time t h e l a n d s i n q u e s t i o n became p a r t o f t h e r e s e r v a t i o n . The d e c r e e a l s o p r o v i d e d f o r d e l i v e r y of w a t e r o n l y t o u s e r s who h e l d v a l i d c o n t r a c t s w i t h t h e S e c r e t a r y o f t h e I n t e r i o r .

COLORADO RIVER BASIN PROJECT ACT, 1968 f l f* The ac t ( 4 3 U.S.C. 1501 ) a u t h o r i z e d t h e c o n s t r u c t i o n

o f t h e C e n t r a l A r i z o n a P r o j e c t and a number o f w a t e r u s e p r o j e c t s i n t h e Upper Bas in . I t d i r e c t s t h e S e c r e t a r y o f t h e I n t e r i o r t o p ropose c r i t e r i a f o r t h e c o o r d i n a t e d l ong - r ange o p e r a t i o n o f t h e b a s i n ' s r e s e r v o i r s . I t a l s o p r o v i d e s t h a t i n t h e e v e n t t h e r e is i n s u f f i c i e n t w a t e r t o release 7 . 5 maf t o t h e Lower B a s i n , d i v e r s i o n s to t h e C e n t r a l A r i z o n a P r o j e c t s h a l l be so l i m i t e d as t o , i n e f f e c t , g u a r a n t e e C a l i f o r n i a t h e u s e o f 4 . 4 maÂ a n n u a l l y .

An o b j e c t i v e o f t h e a c t i s t o p r o v i d e a program f o r t h e comprehens ive deve lopment o f t h e w a t e r r e s o u r c e s o f t h e Co lo rado R i v e r B a s i n and a d d i t i o n a l water s u p p l i e s f o r u s e i n t h e Upper and Lower B a s i n s . The a c t d e c l a r e s t h a t t h e s a t i s f a c t i o n o f t h e Mexican Water T r e a t y c o n s t i t u t e s a n a t i o n a l o b l i g a t i o n which s h a l l b e t h e f i r s t p r i o r i t y o f any water a u g m e n t a t i o n p r o j e c t p l anned p u r s u a n t to t h e a c t . However, t h e b a s i n S t a t e s a r e n o t r e l i e v e d o f t h e o b l i g a t i o n t o p r o v i d e w a t e r t o Mexico u n t i l a n a u g m e n t a t i o n p l a n i s d e v e l o p e d and i n o p e r a t i o n .

FEDERAL WATER POLLUTION CONTROL ACT AMENDMENTS A 1 9 7 2 &* 9 2-+.^0

1 J IY

The o b j e c t i v e o f t h i s a c t ( 3 3 U.S.C. 1 2 5 1 ) is to restore and m a i n t a i n t h e c h e m i c a l , p h y s i c a l , and b i o l o g i c a l i n t e g r i t y o f t h e N a t i o n ' s waters. The a c t a u t h o r i z e d t h e Env i ronmen ta l P r o t e c t i o n Agency, a f t e r c o o p e r a t i o n w i t h o t h e r F e d e r a l a g e n c i e s , S t a t e w a t e r p o l l u t i o n c o n t r o l a g e n c i e s , and o t h e r s i n v o l v e d t o p r e p a r e or d e v e l o p comprehens ive p rograms f o r p r e v e n t i n g , r e d u c i n g or e l i m i n a t i n g t h e p o l l u t i o n o f t h e n a v i g a b l e w a t e r s and ground w a t e r and improving t h e s a n i t a r y c o n d i t i o n s o f s u r f a c e and underground w a t e r s .

Some o f t h e more i m p o r t a n t a s p e c t s o f t h e a c t , b r i e f l y e x p l a i n e d , i n c l u d e :


- -Au tho r i z ing EPA t o p r o v i d e g r a n t s f o r r e s e a r c h or d e m o n s t r a t i o n projects and c o n s t r u c t i o n o f t reat- ment works to F e d e r a l a g e n c i e s , S t a t e s , or p r i v a t e o r g a n i z a t i o n s .

- -Author iz ing EPA t o p u b l i s h and r e v i s e from time to time water q u a l i t y c r i t e r i a and t o r e v i s e s t a n d a r d s t o i n c l u d e i n t r a s t a t e a s well as i n t e r s t a t e s t r e a m s .

- -P rov id ing f o r t h e b e s t p r a c t i c a l w a t e r p o l l u t i o n c o n t r o l t e c h n o l o g y t o b e a p p l i e d by J u l y 1, 1977 , f o l l o w e d by t h e best a v a i l a b l e t e c h n o l o g y economic- a l l y a c h i e v a b l e by J u l y 1, 1983. The d e a d l i n e s f o r a c h i e v i n g t r e a t m e n t l e v e l s were e x t e n d e d i n December 1977 w i t h t h e p a s s a g e of t h e C lean Water Act o f 1977 ( P u b l i c Law 95-217, 9 1 S t a t 1582 ) .

- -Prov id ing f o r t h e gove rnmen ta l r e g u l a t i o n o f p o l l u t a n t d i s c h a r g e s t h r o u g h a manda to ry p e r m i t program, m o n i t o r i n g , i n s p e c t i o n , and p e r i o d i c r e p o r t i n g and r e q u i r i n g t h o s e d i s c h a r g e r s o f f i l l o r d r e d g e m a t e r i a l i n t o a n a v i g a b l e stream t o o b t a i n a p e r m i t from t h e Corps o f E n g i n e e r s .

- -Requi r ing , a s i n t e r p r e t e d by EPA, t h a t n u m e r i c a l s t a n d a r d s f o r s a l i n i t y b e e s t a b l i s h e d f o r t h e C o l o r a d o R i v e r sy s t em.

PERMANENT AND DEFINITIVE SOLUTION TO THE INTERNATIONAL PROBLEM OF THE SALINITY OF THE COLORADO RIVER, MINUTE NO. 2 4 2 , AUGUST 3 0 , 1 9 7 3 , OF THE INTERNATIONAL BOUNDARY AND WATER COMMISSION

The ag reemen t r e q u i r e s t h a t t h e Un i t ed S t a t e s i n i t i a t e s e v e r a l a c t i o n s t o a s s u r e t h a t t h e w a t e r s d e l i v e r e d to Mexico ups t r eam from Morelos Dam w i l l h ave a n a v e r a g e s a l i n i t y of n o more t h a n 115 p a r t s per m i l l i o n p l u s o r minus 30 p a r t s p e r m i l l i o n t o t a l d i s s o l v e d s o l i d s g r e a t e r t h a n t h e a v e r a g e a n n u a l s a l i n i t y o f Co lo rado R i v e r w a t e r s a r r i v i n g a t I m p e r i a l Dam. The m e a s u r e s t o b e u n d e r t a k e n t o meet t h i s ag reemen t were a u t h o r i z e d by t i t l e I o f t h e C o l o r a d o R i v e r Bas in S a l i n i t y C o n t r o l A c t .

COLORADO RIVER BASIN SALINITY CONTROL ACT, 1974 ( 4 3 U.S.C. 1571 ) f.1- f3'3m

T i t l e s I and I1 o f t h e a c t ( 4 3 U.S.C. 1 5 7 1 ) r e q u i r e t h e S e c r e t a r y o f t h e I n t e r i o r t o implement s e v e r a l p rograms t o improve t h e w a t e r q u a l i t y o f t h e C o l o r a d o R i v e r . T i t l e I


was authorized to improve the quality of water going to Mexico downstream from Imperial Dam. It included the construction of a desalting complex in the vicinity of Yuma, Arizona; reduction of irrigation return flows throuqh acquisition of lands and implementation of irrigation efficiency improvement programs in the Wellton-Mohawk Irrigation and Drainage District; lining 49 miles of the Coachella Canal; and constructing a well field near the Mexican border capable of pumping approximately 160,000 acre-feet of water per year.

Title I1 authorizes measures to improve the quality of water upstream from Imperial Dam. It authorized the Secretary of the Interior to construct the Paradox Valley, Grand Valley, Crystal Geyser, and Las Vegas Wash salinity control projects and expedite completion of planning reports on 12 others. Title I1 also establishes the Colorado River Basin Salinity Control Advisory Council.

APPENDIX I1 APPENDIX I1

LISTING OF PRINCIPAL REPORTS

AND DOCUMENTS USED DURING REVIEW

Analysis of Managerial, Financial, and Regulatory Functions of Regional Water Resources Authorities and Other Institutional Arran ements, Booz, Allen and Hamilton, Inc., Springfield, V rg n a January 31, 1970. * Arizona State Water Plan: Inventory of Resource and Uses - Summary, Arizona Water Connission, July 1975,. Also: Phase 1, ~ u l y 1975.

Arizona State Water Plan: Alternative Futures, Phase 11, Arizona Water Commission, February 1977.

Colorado River International Salinity Control Project, Special Report, Bureau of Reclamation: Office of Saline Water, U.S. Department of the Interior, September 1973.

Colorado River Regional Asse~nent Study - Part One: Executivs Summary, Basin Profile, and Report Digest, Utah Water Research Laboratory, Utah State University, Loqan, Utah, October 1975. Also: colorado River -- Regional ~ksessment Study - Parts 2 to 4, October 1975.

Colorado River Water Quality Improvement Proqram, Bureau of Reclamation, U.S. Department of the Interior, Washington, D.C., February 1972.

Economic Impacts of Changes in Salinity Levels of the Colorado River, Bureau of Reclamation, U.S. Department of the Interior, Denver, Colorado, February 1974.

Final ~nvironmental Statement, Colorado River Basin Salinity Control Project - Title I, Bureau of Reclamation - Lower Colorado Region, U.S. Department of the Interior, June 18, 1975.

Final Environmental Statement, Colorado River Water Quality Improvement Program -- Volume I, 11, Bureau of Reclamation - U.S. Department of the Interior and Soil Conservation Service - U.S. Department of Agriculture, Washington D.C., May 1977.

Federal Reserved Water Rights Task Group Report, Federal Reserved Water Rights Task Group, December 1977.

Geological Survey Professional Paper 81342, "Summary of the Nation s Ground - Water Resources - Upper Colorado Region," Washington, D.C. , 1974.


Lake Powell Research Bulletin, No. 14, "An Overview of the - Effect of Lake Powell on Colorado River Basin Water Supply," November 1975.

Lake Powell Research -..-- Bulletin, No. 18, "Long-Term Surface - Water Supply and Streanflow Trends in the Upper Colorado - - - River Basin Based on Tree-RingAnalysis," arch 1976.

Lower Colorado Region, Specific Problen Analysis Sumnary Report: 1975 National Assessnent of Water and Related Land Resources, Regional Sponsor - Bureau of Reclamation, U.S. Department of the Interior, December 1977. Also: Technical Memorandum No. 2, August 1976 and Technical Menorandun No. 3, April 1977.

Lower Colorado River Region: Comprehensive Franework Study- Main Rewort, Lower Colorado Reaion State - Federal Inter-

& *

agency Group Staff, June 1971.

Meeting of Federal and State Representatives for Review of Basic Data Pertinent to the Preparation of Operating Criteria for the Colorado River Pursuant to Section 602 of Public Law 90-537, Bureau of Reclanation, U.S. Department of the Interior, Washington, D.C., July 25, 1969.

Need for Controllinq Salinity of the Colorado River, Colorado River Board of California, Los Anqeles, ~alifornia, Auqust

One Third of the Nation's Land: Report to the President and - -- - to the Conaress, Public Land Law Review Commission,

d

Washington, D.C., June 1970.

Proceedings of National Conference: Irrigation Return Flow Quality Management, Colorado State university, Sponsored by: U.S. Environnental Protection Aqency, May 1977.

Proposed Water Quality Standards for Salinity Incliidinq Numeric Critericand Plan of Implenentation for Salinity Control - - Colorado River Systen, Colorado River Basin Salinity control Forum, June 1975. Also: Supplement, Auqust 26, 1975.

Report on Water for Energy in the Upper Colorado River Basin, U.S. Departnent of the Interior, Washinqton, D.C., July 1974.

R e ~ r t to the Congress: Better Federal Coordination Needed to - -- Pronote More Efficient Farm 1rriqatioG Report No. RED-76-116, U.S. General ~ccountin~ Office, Washinqton, D.C., June 22, 1976.


Report to the Congress; More and Better Uses Could Be Made of illi ions of Gallons of Water by Improving Irrigation Delivery Systems, Report No. CED-77-117, U.S. General Accounting Office, Washington, D.C., September 2, 1977.

Salinity Management Options for the Colorado River - Damage Estimates and Control Program Impacts, Utah Water Research Laboratory, Utah State University, Utah, October 1977.

State and Local Management Actions to Reduce Colorado River Salinity, Denver Research Institute, University of Denver, Denver, Colorado, September 1977.

The Colorado River, "A Natural Menace Becomes a National Resource," U.S. Department of the Interior, Washington, D.C., March 1976.

The Mineral Quality Problem in the Colorado River Basin - Summary Report, U.S. Environmental Protection Agency - ~egions VIII, IX, 1971. Also: Appendices A , B, C, 1971.

Upper Colorado Region, Specific Problem Analysis Summary Report: 1975 National Assessment of Water and Related Land Resources, Upper Colorado River Commission and Bureau of ~eclamation, U.S. Department of the Interior, April 1977. . - (Draft. ) Also: ~echnical Memorandum No. 2, August 1976 and Technical Memorandum No. 3, March 1977.

Upper Colorado River Reqion: Comprehensive Framework Study ~ a i n Report, Upper Colorado Region State - Federal Interaqency Group Staff and Work Group Chairmen, June 1971.

Vegetation Management for Water Yield Improvenent In the Colorado River Basin, Rocky Mountain Forest and Range Ex- periment Station, Forestry Sciences Laboratory, Arizona State University, Tempe, ~rizona, July 1, 1977.

Water Policies for the Future, National Water Commission, Washington D.C., June 1973.

Westwide Study Report on Critical Water Problems Facing the Eleven Western States, U.S. Department of the ~nterior, Washington, D.C., April 1975.

APPENDIX 111 APPENDIX I I1

AVAILABILITY AND USE OF GROUND WATER

IN THE COLORADO RIVER BASIN

Subsurface water i n completely saturated spaces between s o i l pa r t i c l e s o r rocks i s considered ground water. Layers of s o i l o r rocks bearing ground water (underground reservo i r s ) are cal led aquifers . Nationwide, aquifers have a storage capacity nearly 20 times the combined volume of the Nation's r i ve r s , ponds, lakes, and a l l mannade water impoundments.

Ground water development i n the Colorado River Basin has occurred mainly i n the Lower Basin. Water resource development i n the Upper Basin has been limited almost en t i r e ly t o surface water.

LOWER BASIN

Although there is su f f i c i en t water i n the Colorado River t o meet present demands, there a r e areas i n the Lower Basin not served by the Colorado Riverm-mainly i n Ar izona~where s ign i f i can t water shortages a r e occurring. About 60 percent of Arizona's annual water withdrawal i s pumped from underground water resources. I n many areas of the S t a t e , ground water i s the only supply. I n a reas w i t h a surface water supply, ground water i s of ten a supplement tha t assures a continual supply d u r i n g low surface flows. Substant ial amounts of ground water remain i n storage i n ~ r i z o n a ; however, the annual r a t e of recharge i s very l imited, and thus much of the ground water s tored i s avai lable only fo r one-time use.

Based on limited t e s t i ng , the U . S . Geological Survey estimates tha t the amount of ground water i n Arizona i s between 750 mil l ion and 1.25 b i l l i o n acre-feet. According t o an Arizona Water Connission repor t , approximately 94 percent of the S t a t e ' s water consumption occurs i n 2 4 hydrologic basins fo r which ground water data i s s u f f i c i e n t t o permit reasonable estimates of current water conditions. I n the 4 3 - remaining basins, avai lable ground water data i s inadequate t o make such estimates.

Alarming reductions i n the amount of water s tored i n underground reservoirs a r e occurring a s annual withdrawal exceeds recharge by about 2 . 2 maf. I n the proposed service area of the Central Arizona Project , ground water resources being overdrawn a t the r a t e of 1 .8 maÂ per year. T h i s area includes Pina, Maricopa, and Final Counties and the metro- pol i tan areas of Phoenix and Tucson.

a r e

APPENDIX HI APPENDIX 111

I n Pima C o u n t y , which i n c l u d e s T u c s o n , t h e u s e of g r o u n d w a t e r is 3 .7 times d e p e n d a b l e s u p p l y . I/ I n F i n a l ( P h o e n i x ) and M a r i c o p a C o u n t i e s t h e r a t i o s o f g r o u n d w a t e r u s a g e t o d e p e n d a b l e s u p p l y a re 2 . 4 and .9, r e s p e c t i v e l y . I n some s m a l l h y d r o l o g i c b a s i n s , r a tes o f d e p l e t i o n a p p r o a c h 100 t i m e s t h e m a g n i t u d e o f d e p e n d a b l e s u p p l y .

A v e r a g e d e c l i n e s i n g r o u n d w a t e r t a b l e s i n c e n t r a l A r i z o n a r a n g e f rom 1 . 8 to 1 3 . 8 f e e t a y e a r . A s t h e g r o u n d w a t e r t a b l e d r o p s , p r o b l e m s a r i s e f r o m i n c r e a s e d pumping cos t s , d e t e r i o r a t i o n i n water q u a l i t y , a n d l a n d s u b s i d e n c e .

One o f t h e C e n t r a l A r i z o n a P r o j e c t ' s o b j e c t i v e s i s to r e d u c e A r i z o n a ' s d e p e n d e n c e o n g r o u n d w a t e r b y d i v e r t i n g a n a v e r a g e o f a p p r o x i m a t e l y 1.2 rnaf a n n u a l l y o f C o l o r a d o R i v e r w a t e r to c e n t r a l A r i z o n a u s e r s . W h i l e it i s i n t e n d e d t h a t t h e g r o u n d w a t e r o v e r d r a f t w i l l a l s o d e c r e a s e b y a n a v e r a g e o f 1 . 2 maf a n n u a l l y , t h e r e d u c t i o n w i l l n o t a l w a y s o c c u r . F o r i n s t a n c e , t h e a l l o c a t i o n o f w a t e r t o CAP h a s low p r i o r i t y a n d is s u b o r d i n a t e to t h e w a t e r r i g h t s of o t h e r u s e r s i n t h e Lower B a s i n ; t h e r e f o r e , a n y r e d u c t i o n i n r e l e a s e s to t h e Lower B a s i n i n w a t e r - s h o r t y e a r s w i l l r e s u l t i n l e s s t h a n a n a v e r a g e o f 1 . 2 maÂ b e i n g a v a i l a b l e f o r CAP and a c o r r e s p o n d i n g i n c r e a s e i n g r o u n d w a t e r d e p l e t i o n s . I n a d d i t i o n , t h e p r e d i c t e d s h o r t a g e o f s u r f a c e w a t e r i n t h e e a r l y 2000s c a n a l s o r e s u l t i n i n c r e a s e d u s e o f g r o u n d w a t e r .

The r e a l i z a t i o n t h a t w a t e r i n A r i z o n a is g r a d u a l l y r u n - n i n g o u t h a s l e d t o i n c r e a s e d c o m p e t i t i o n a n d c o n f l i c t among w a t e r u s e r s ; i . e . , u r b a n and r e s i d e n t i a l i n t e r e s t s p i t t e d a g a i n s t a g r i c u l t u r e and I n d i a n s p i t t e d a g a i n s t n o n - I n d i a n s . A c c o r d i n g t o A r i z o n a Water Commiss ion s t u d i e s , e v e n w i t h CAP o p e r a t i o n a l and a m e d i a n g r o w t h r a t e i n n o n a g r i c u l t u r a l a c t i v i t i e s , i t i s e x p e c t e d t h a t a g r i c u l t u r a l a c r e a g e would h a v e to b e r e d u c e d i f a b a l a n c e b e t w e e n w a t e r s u p p l y a n d u s e i s t o b e a c h i e v e d by t h e y e a r 2020.

Even t h o u g h A r i z o n a i s e x p e r i e n c i n g s i g n i f i c a n t d e p l e t i o n s o f g r o u n d water, i t d o e s n o t h a v e a s t r o n g g r o u n d w a t e r l a w t o c o n t r o l pumping and u s e of t h e w a t e r . B e f o r e 1977 A r i z o n a ' s g r o u n d w a t e r l a w r e q u i r e d a p e r m i t f o r t h e d r i l l i n g o f new i r r i g a t i o n wel ls i n c r i t i c a l g r o u n d w a t e r a r e a s , b u t d i d n o t p l a c e l i m i t s on t h e amount o f w a t e r t h a t c o u l d be pumped or u s e d o n t-he l a n d ; n e i t h e r d i d i t p r o h i b i t d r i l l i n g d o m e s t i c wells or t h e r e p l a c e m e n t o f n o n p r o d u c t i v e

I / D e p e n d a b l e w a t e r s u p p l y r e p r e s e n t s t h e amount o f w a t e r t h a t - c a n b e d e p l e t e d a n n u a l l y o v e r a l o n g p e r i o d o f t i m e w i t h o u t l o w e r i n g t h e l e v e l s o f g r o u n d w a t e r o r s u r f a c e w a t e r s t o r a g e .

APPENDIX 111 APPENDIX I11

i r r i ga t i on wells. The amount of ground water t h a t can be extracted is limited only by the amount t h a t can be put t o "reasonable use." However, the term "reasonable use" has not been adequately defined.

I n 1977 Arizona enacted a law t h a t fomed a Groundwater Management Study Commission. The commission is di rec ted t o review and evaluate ground water i n Arizona and issue a f i n a l report by December 1979 for use i n developing a ground water management code. The law provides t ha t i f the l eg i s l a tu r e f a i l s t o enact a ground water management code by September 1981, the code recommended by the commission s h a l l become law.

UPPER B A S I N

Ground water development i n the Upper Basin has been done on a small sca le even though the average annual replenishable ground water supply fo r the Upper Colorado River Basin i s estimated by USGS t o be about 4 maÂ£ The t o t a l volume of recoverable ground water i n storage i n the upper 100 f e e t of f the aquifer i s estimated t o be between 50 t o 115 maf. The maximum f igure i s nearly four times the t o t a l ac t ive s torage capacity of a l l surface water impoundments i n the region.

Development of ground water resources f o r i r r i ga t i on purposes has not been economically feas ib le i n much of the Upper Basin because:

--About 85 percent of the estimated recoverable water i n the upper 100 f e e t of s torage occurs i n rocks which have yielded water slowly.

- - In nuch of the area away from the flood p la ins of the r i ve r and i t s t r ibu ta ry streams, the depth of ground water i s generally from severa l hundred t o more than 1 , 0 0 0 fee t below the land surface and therefore i s considered economically inaccessible.

- A large percentage of the ground water located away from the r i ve r flood p la ins i s s a l i n e , and processing would be required f o r most uses.

The areas where ground water i s more read i ly extracted a re located i n the flood pla ins of the r i ve r and i t s t r i bu t a ry streams. Pumping of t h i s ground water decreases the surface flows and any use of ground water i s considered p a r t of the users ' surface water a l locat ions .

Although invest iqat ions have been l imi ted , USGS indicated t h a t the opportunity e x i s t s t o use,.ground water nore e f fec t ive ly i n conjunction w i t h surface water i n many of these

APPENDIX I I1 APPENDIX I11

i r r i g a t e d a r e a s a l o n g t h e l a r g e r streams i n t h e Upper Bas in . I n t h e s e a r e a s g round w a t e r c o u l d b e used t o supp lemen t s u r f a c e w a t e r d u r i n g p e r i o d s o f low f l o w , which commonly c o i n c i d e w i t h p e r i o d s o f peak s e a s o n a l demand.

If ground water w i t h d r a w a l e x c e e d s n a t u r a l r e c h a r g e d u r i n g t h e s e low-flow p e r i o d s , t h e n t h e g round w a t e r c o u l d b e r e c h a r g e d a r t i f i c i a l l y d u r i n g p e a k r u n o f f p e r i o d s . Such a c o o r d i n a t e d s y s t e m would p r o v i d e a more un i fo rm year - round w a t e r s u p p l y w i t h o u t s u r f a c e r e s e r v o i r c o n s t r u c t i o n . The deve loped ground w a t e r f i e l d s , r e g a r d l e s s o f t h e i r p r i m a r y p u r p o s e , would a l s o p r o v i d e a n emergency p u b l i c w a t e r s u p p l y f o r towns l o c a t e d i n t h e s e a r e a s .

Accord ing t o a USGS o f f i c i a l , t h e a g e n c y ' s estimates o f e x i s t i n g ground w a t e r s u p p l i e s i n t h e Upper B a s i n a r e o n l y a c c u r a t e w i t h i n + 50 p e r c e n t . E x i s t i n g wells a l o n g t h e r i v e r f l o o d p l a i n d o n o t p r o v i d e s u f f i c i e n t d a t a t o assess a d e q u a t e l y t h e a v a i l a b i l i t y of ground w a t e r . A l s o , t h e l a c k of wells o u t s i d e t h e f l o o d p l a i n s r e q u i r e s g round w a t e r s u p p l i e s t o be e s t i m a t e d by a n a l y z i n g s o i l s a m p l e s and u s i n g d a t a o n s i m i l a r a q u i f e r s i n o t h e r b a s i n s .

APPENDIX I V APPENDIX I V

COLORADO RIVER B A S I N DAMS AND RESERVOIRS

S t o r a g e S t o r a g e Dam - R e s e r v o i r R i v e r c a p a c i t y 9-30-78

( t housand acre-f ee t 1

Upper B a s i n

F o n t e n e l l e F o n t e n e l l e Green 3 4 4 322 Flaming Gorge Flaming Gorge Green 3,749 2,825 Blue Mesa Blue Mesa Gunnison 830 728 Morrow P o i n t Morrow P o i n t Gunnison 1 1 7 114 Navajo Navajo San Juan 1 , 6 9 6 1 , 2 3 8 Glen Canyon Lake Powell Colorado 25,000 16 ,563

Lower B a s i n

Hoover Davis P a r k e r

T o t a l

Lake Mead Colorado 26 ,159 Mohave C o l o r a d o 1 ,810 Havasu C o l o r a d o - 619

APPENDIX V APPENDIX V

EFFORTS TO SALVAGE, CONSERVE, AND AUGMENT

THE WATER SUPPLY I N THE COLORADO RIVER

The f o l l o w i n g i s a b r i e f d i s c u s s i o n o f e f f o r t s t o i n c r e a s e t h e u s a b l e w a t e r s u p p l y , o r t h e u t i l i t y o f t h e w a t e r s u p p l y , i n t h e Colorado R i v e r Bas in t h r o u g h conse rva - t i o n , w a t e r s a l v a g e , and augmen ta t i on .

WATER SALVAGE

The 1968 Co lo rado R i v e r Bas in P r o j e c t A c t ( 4 3 U.S.C. 1501 ) d i r e c t e d t h e S e c r e t a r y o f t h e I n t e r i o r t o u n d e r t a k e programs f o r w a t e r s a l v a g e and ground w a t e r r e c o v e r y a l o n g and a d j a c e n t to t h e Co lo rado R ive r . During c o n g r e s s i o n a l h e a r i n g s o n t h e a c t , t h e Bureau o f Rec l ama t ion e s t i m a t e d t h a t a b o u t 680,000 a c r e - f e e t o f w a t e r c o u l d b e s a l v a g e d a n n u a l l y t h r o u g h (1) o p e r a t i o n s of S e n a t o r Wash Dam t o c o n t r o l r e l e a s e s t o Mexico, ( 2 ) g round w a t e r r e c o v e r y , ( 3 ) p h r e a t o p h y t e I/ e r a d i c a t i o n ( p l a n t r e m o v a l ) , and ( 4 ) c h a n n e l s t a b i l i z a t i o n i n t h e lower r e a c h e s o f t h e Co lo rado R i v e r . I n a d d i t i o n , a b o u t 65,000 a c r e - f e e t o f w a t e r had been s a l v a g e d a n n u a l l y a s p a r t o f Co lo rado R i v e r F r o n t Work and Levee System o p e r a t i o n s , which were e s t a b l i s h e d i n 1927 and expanded i n 1946. Water s a l v a g e was a b y p r o d u c t o f t h e s e o p e r a t i o n s which i n v o l v e d r i v e r d r e d g i n g t o s t a b i l i z e t h e c h a n n e l , c l e a r s e d i m e n t , and c o n t r o l bank e r o s i o n . A s a resu l t o f t h e d r e d g i n g , less w a t e r was l o s t t o p l a n t u s e and e v a p o r a t i o n .

A 1968 compar i son o f t h e e s t i m a t e s o f a n n u a l w a t e r s a l v a g e , i n c l u d i n g t h e r ema in ing p o t e n t i a l a l o n g t h e ma ins t r eam o f t h e Co lo rado R i v e r , is p r e s e n t e d i n t h e n e x t t a b l e .

l / A p h r e a t o p h y t e is a deep - roo t ed p l a n t t h a t o b t a i n s i t s - w a t e r from t h e v ~ a t e r t a b l e o r t h e l a y e r o f s o i l j u s t above it .

APPENDIX v APPENDIX V

Annual w a t e r s a l v a g e 1968 Accom- A d d i t i o n a l Rev i sed

Program Estimate p l i s h m e n t s p o t e n t i a l estimate

---...a".---- ( t h o u s a n d acre-feet)----------

Channe l d r e d g i n g 190.0 56.0 134 .0 190.0 P h r e a t o p h y t e e r a d i c a t i o n 100.0 160 .0 57.0 217.0 S e n a t o r Wash Dam 170 0 207 5 0 207 5 Ground w a t e r r e c o v e r y 220.0 80 .0 125.0 205.0

T o t a l 680.0 503.5 316.0 819.5

P r e v i o u s l y accompl i shed 65.0 65.0 0 - 65.0

T o t a l

We were informed t h a t i n 1 9 7 0 h a f t e r a n a n n u a l 56,000 a c r e - f e e t o f water was s a l v a g e d - - t h e C o l o r a d o R i v e r d r e d g i n g program was s u b s t a n t i a l l y c u r t a i l e d i n r e s p o n s e t o p r o t e s t s by l o c a l e n v i r o n m e n t a l i s t s and t h e F i s h and W i l d l i f e S e r v i c e . However, some I n d i a n s and p r i v a t e l a n d o w n e r s h a v e i g n o r e d e n v i r o n m e n t a l i s t s ' o b j e c t i o n s and h a v e removed p l a n t s g rowing on t h e i r l a n d s a l o n g t h e r i v e r b a n k s . T h i s h a s r e s u l t e d i n 160 ,000 a c r e - f e e t o f a d d i t i o n a l w a t e r s a l v a g e a n n u a l l y .

S e n a t o r Wash Dam was d e s i g n e d t o r e g u l a t e d e l i v e r i e s t o Mexico and r e d u c e d e l i v e r i e s i n e x c e s s o f commitments. A Bureau o f f i c i a l e s t i m a t e d t h a t d u r i n g t h e p e r i o d 1967-76 a b o u t 207,000 a c r e - f e e t o f water was s a l v a g e d a n n u a l l y a s a r e s u l t o f o p e r a t i n g t h e dam.

Accord ing t o Bureau o f R e c l a m a t i o n o f f i c i a l s , 1 2 ground w a t e r r e c o v e r y wells a r e pumping a p p r o x i m a t e l y 45,000 acre- f e e t o f w a t e r a n n u a l l y i n t h e Yuma-Mesa a r e a o f s o u t h w e s t A r i z o n a so t h a t g round w a t e r losses t o Mexico c a n b e r e d u c e d . The Bureau i s r e c o v e r i n g a n o t h e r 35,000 a c r e - f e e t f rom w e l l s i n s t a l l e d a l o n g t h e i n t e r n a t i o n a l b o r d e r w i t h Mexico. The Bureau p l a n s t o i n s t a l l a d d i t i o n a l wells a l o n g t h e i n t e r n a -

@- t i o n a l b o r d e r and e s t i m a t e s t h a t a n a d d i t i o n a l 125 ,000 a c r e - f e e t o f water w i l l b e s a l v a g e d a n n u a l l y when t h e wells a r e i n o p e r a t i o n . The b o r d e r wells were a u t h o r i z e d by t h e C o l o r a d o R i v e r B a s i n S a l i n i t y C o n t r o l Act ( 4 3 U.S.C. 1 5 7 3 ) . A m a j o r p o r t i o n o f t h e w a t e r punped f rom t h e Un i t ed S t a t e s wells w i l l t h e n b e s e n t t o Mexico v i a a s u r f a c e stream i n p a r t i a l f u l f i l l - ment o f t h e Mexican t r e a t y commitment t o d e l i v e r 1 . 5 maf o f w a t e r a n n u a l l y .


CONSERVATION

E f f o r t s t o c o n s e r v e w a t e r i n t h e b a s i n have been p r i m a r i l y d i r e c t e d toward r e d u c i n g losses f rom t h e i r r i g a t i o n p r o c e s s ; t h a t . i s , conveyance s y s t e m losses, e v a p o r a t i o n , and e x c e s s i v e w a t e r u s e i n c r o p i r r i g a t i o n .

Winter u s e is measured i n amounts wi thdrawn o r consumed. Water wi thdrawn i s t h a t which is d i v e r t e d f rom i t s n a t u r a l c o u r s e f o r u s e and n a y b e r e t u r n e d l a t e r f o r f u r t h e r u s e . Water consumed is w a t e r i n c o r p o r a t e d i n t o a p r o d u c t o r l o s t t o t h e a tmosphe re and n o t a v a i l a b l e f o r r e u s e . Water consuned i s t h e more i m p o r t a n t c o n c e r n b e c a u s e i t r e p r e s e n t s abso- l u t e r e d u c t i o n s i n w a t e r s u p p l y .

A g r i c u l t u r a l i r r i g a t i o n u s e s t h e l a r g e s t amount o f w a t e r consumed i n t h e Co lo rado R i v e r Basin--between 85 and 90 pe r - c e n t . V a r i o u s F e d e r a l s t u d i e s have h i g h l i g h t e d t h e i m p o r t a n c e o f s e e p a g e losses from a g r i c u l t u r a l w a t e r conveyance s y s t e m s . The Depar tment o f A g r i c u l t u r e h a s e s t i m a t e d t h a t 20 t o 25 p e r c e n t o f t h e w a t e r d i v e r t e d f rom s t r e a m s or r e s e r v o i r s f o r a g r i c u l t u r e d o e s n o t r e a c h f a r m s . A l s o , c r o p i r r i g a t i o n i s a r e l a t i v e l y i n e f f i c i e n t w a t e r u s e , s i n c e u n d e r p r e s e n t p r a c t i c e s l e s s t h a n h a l f o f t h e w a t e r d e l i v e r e d f o r i r r i g a t i o n i s a c t u a l l y consumed by t h e c r o p s .

Water l o s t t h r o u g h s e e p a g e o r which i s e x c e s s t o c r o p n e e d s n a y (1) b e l o s t t o n o n r e c o v e r a b l e e v a p o r a t i o n and d e e p p e r c o l a t i o n o r consumed by w i l d l i f e h a b i t a t and n o n a g r i c u l t u r a l v e g e t a t i o n , ( 2 ) o v e r s a t u r a t e t h e l a n d s , c a u s i n g d r a i n a g e p rob l ems , o r ( 3 ) r e t u r n t o t h e s u p p l y s y s t e m a t d o w n s t r e a n l o c a t i o n s f o r f u r t h e r u s e b u t d e g r a d e d i n q u a l i t y by m i n e r a l s , f e r t i l i z e r s , s e d i m e n t , and p e s t i c i d e s .

Bureau o f f i c i a l s s t a t e d t h a t i n f o r m a t i o n o n n o n r e c o v e r a b l e w a t e r l o s s e s and n o n a q r i c u l t u r a l consumpt ion f o r t h e C o l o r a d o R i v e r B a s i n i s n o t r e a d i l y a v a i l a b l e . However, a c c o r d i n g t o an A p r i l 1975 Depar tment o f t h e I n t e r i o r r e p o r t , I / i r r i g a t i o n w a t e r b u d g e t s f o r 1970 f o r t h e 11 Weste rn S t a t e s show t o t a l w a t e r d e l i v e r y l o s s e s o f 32 maÂ and c o n s u n p t i v e u s e o f 69 n a f . O f t h e l a t t e r , 7 5 p e r c e n t , o r 52 n a f , was w a t e r consumed by growing c r o p s and p a s t u r e . The r e m a i n d e r , 1 7 maf , was w a t e r consumed a s a r e s u l t o f losses i n t h e i r r i g a t i o n p r o c e s s . According t o o f f i c i a l s i r o n t h e Bureau and t h e S o i l Conserva- t i o n S e r v i c e , no s t u d i e s or i n v e s t i q a t i o n s have been c o n d u c t e d i n t h e Co lo rado R i v e r Bas in t o d e t e r m i n e how much w a t e r

l /"Westwide S t u d y R e p o r t o n C r i t i c a l Water Problems F a c i n g t h e - Eleven Wes te rn S t a t e s , " Apr. 1975.


p r e s e n t l y l o s t t h r o u g h i r r i g a t i o n c o u l d be s a v e d t h r o u g h c o n s e r v a t i o n measu re s . S t a t e o f f i c i a l s s t a t e d t h a t some o f t h e s e losses a r e r e t u r n e d t o t h e s u r f a c e streams f rom underground f l o w s .

Accord ing t o Bureau o f f i c i a l s , t h e p r i n c i p a l a g r i c u l t u r a l w a t e r c o n s e r v a t i o n programs i n t h e C o l o r a d o R i v e r B a s i n a r e t h e I r r i g a t i o n Managenent S e r v i c e (IMS) program I/ and l i n i n g o f a g r i c u l t u r a l w a t e r conveyance s y s t e m s . IMS is a s y s t e m a t i c - d e t e r m i n a t i o n o f when t o i r r i g a t e and how much water t o a p p l y . I t h a s been implemented o n l y t o a l i m i t e d d e g r e e i n t h e b a s i n . ~ l t h o u q h t h e program i s r a t h e r i n e x p e n s i v e , t h e Bureau h a s a c h i e v e d o n l y l i m i t e d s u c c e s s i n g e t t i n q f a r m e r s t o u s e i t . One r e a s o n f o r t h i s i s t h a t t h e Bureau h a s been u n a b l e t o d e v e l o p s t a t i s t i c a l l y sound d a t a t o c o n v i n c e farmers o f t h e economic b e n e f i t s r e s u l t i n g f rom t h e p r o q r a n . B e n e f i t s i n c l u d e i n c r e a s e d c r o p y i e l d s , lower o p e r a t i n g costs , and u s e o f less w a t e r . Some f a r m e r s f e e l t h a t t h e y would lose w a t e r r i g h t s i f l e s s w a t e r were u sed .

To r e d u c e s e e p a g e losses, t h e Bureau i s c o n c r e t e l i n i n g t h e c a n a l s and l a t e r a l s o f a l l new w a t e r conveyance f a c i l i t i e s b e i n g c o n s t r u c t e d i n t h e b a s i n . Also, a s a p a r t o f t h e s a l i n i t y c o n t r o l p rogram, t h e Bureau e s t a b l i s h e d a n improvement program t h a t m a i n l y i n v o l v e s l i n i n g o f e x i s t i n g c a n a l s , d i t c h e s , and l a t e r a l s . One m a j o r p rob l em h a s emerged: t h e program n a y b e i n d i r e c t c o n f l i c t w i t h a n E x e c u t i v e o r d e r pro- h i b i t i n g t h e d r y i n g up o f e x i s t i n g w e t l a n d s so t h a t t h e n a t u r a l h a b i t a t o f p l a n t s and w i l d l i f e may b e p r e s e r v e d .

Main ly a s a r e s u l t o f t h e C o l o r a d o R i v e r B a s i n S a l i n i t y C o n t r o l A c t , t h e S o i l C o n s e r v a t i o n S e r v i c e i s i n v o l v e d t o a l i m i t e d d e g r e e i n p r o v i d i n g t e c h n i c a l and c o s t - p l a n n i n g a s s i s t a n c e t o f a r m e r s a s w e l l a s p r o v i d i n g on fa rm improvement-- l e v e l i n g l a n d , l i n i n g d i t c h e s , i n s t a l l i n g a u t o m a t i c i r r i g a t i o n s y s t e r n s ~ i n a n at tempt t o improve on fa rm i r r i g a t i o n e f f i c i e n c y . The on fa rm i n p r o v e n e n t s a r e t o be p a i d f o r o n a c o s t - s h a r i n g bas i s - -75 p e r c e n t by t h e Federal Government and 25 p e r c e n t by t h e f a r m e r .

The o p p o r t u n i t i e s t o c o n s e r v e w a t e r i n t h e i r r i q a t i o n p r o c e s s a r e p o i n t e d o u t i n two GAO r e p o r t s i n 1976

l /The IMS program was i n s t i t u t e d by t h e Bureau a s a p a r t o f - t h e C o l o r a d o R i v e r S a l i n i t y C o n t r o l A c t ( P u b l i c Law 9 3 - 3 2 0 , 88 S t a t 266 , J u n e 2 4 , 1 9 7 4 ) .

APPENDIX V

and 1977 . I/ The need f o r improv ing F e d e r a l i nvo lvemen t i n p romo t inq more e f f i c i e n t i r r i g a t i o n p r a c t i c e s and f o r improv ing t h e e f f i c i e n c y o f i r r i g a t i o n d e l i v e r y s y s t e m s i n t h e N a t i o n a s w e l l a s t h e C o l o r a d o R i v e r B a s i n are a l s o d i s c u s s e d i n t h e s e r e p o r t s . The Depar tment o f t h e I n t e r i o r and t h e Bureau h a v e t a k e n l e a d ro les i n conduc t - i n g t h e f o l l o w i n g two s t u d i e s c o n c e r n e d w i t h f i n d i n g ways o f improv ing w a t e r e f f i c i e n c y i n i r r i g a t i o n . ( I r r i g a t i o n p r o j e c t s i n t h e Co lo r ado R i v e r B a s i n w i l l b e i n c l u d e d i n b o t h o f t h e s e s t u d i e s . )

1. The Depa r tmen t s o f A g r i c u l t u r e and t h e I n t e r i o r and EPA h a v e e s t a b l i s h e d a n I n t e r a g e n c y Task Force o n I r r i g a t i o n E f f i c i e n c i e s . T h i s t a s k f o r c e ' s m i s s i o n i s t o examine p rob l ems o f i n e f f i c i e n t i r r i g a t i o n f a c i l i t i e s and o p e r a t i o n s and d e v e l o p r e c o n n e n d a t i o n s r e g a r d i n q app ro - p r i a t e F e d e r a l o b j e c t i v e s , p o l i c i e s , a g e n c y ro les , and a c t i o n p rograms . The t a s k f o r c e is c o n c e r n e d w i t h b o t h F e d e r a l and non-Federa l i r r i g a t i o n p r o j e c t s and i s c o n s i d e r i n g onfa rm i r r i g a t i o n s y s t e m s . The t a s k f o r c e h a s e s t a b l i s h e d a t e c h n i c a l work g r o u p , c o n s i s t i n g o f r e p r e s e n t a t i v e s f rom t h e p a r t i c i p a t i n g F e d e r a l a g e n c i e s and non -Fede ra l g r o u p s t o r e v i e w and a n a l y z e d a t a . I t i s p l a n n e d t h a t t h e t a s k f o r c e ' s f i n d i n g s and recommenda t ions w i l l b e p r e s e n t e d i n a r e p o r t t o t h e S e c r e t a r i e s o f A g r i c u l t u r e and t h e I n t e r i o r and t h e A d m i n i s t r a t o r o f E P A i n May 1 9 7 9 .

2. The Bureaus o f R e c l a m a t i o n and I n d i a n A f f a i r s a r e c o o p e r a t i n g i n a Wate r C o n s e r v a t i o n O p p o r t u n i t i e s S tudy . I ts p r i m a r y p u r p o s e i s t o i n v e n t o r y and r a n k F e d e r a l i r r i g a t i o n p r o j e c t s o n t h e b a s i s o f o p p o r t u n i t i e s t o i n c r e a s e w a t e r u s e e f f i c i e n c y . Based o n t h i s i n v e n t o r y and r a n k i n g , h i q h - p r i o r i t y p r o j e c t s w i l l b e s e l e c t e d f o r more d e t a i l e d s t u d i e s and s u b s e q u e n t i m p l e m e n t a t i o n o f i n p r o v e - n e n t s . A s e c o n d a r y o b j e c t i v e i s t h e deve lopmen t o f b a s i c d a t a on c a u s e s and e f f e c t s o f l o w - i r r i g a t i o n e f f i c i e n c i e s , f a c t o r s which d i s c o u r a g e d e s i r e d i m p r o v e n e n t s , p rograms needed t o e f f e c t i n p r o v e m e n t s , e t c . , f o r u s e by t h e I n t e r - agency Task F o r c e o n I r r i g a t i o n E f f i c i e n c i e s . I n t h i s s t u d y , t e c h n i c a l s p e c i a l i s t s a r e examin inq p r o j e c t and on fa rm f a c i l i t i e s , o p e r a t i o n s , and management o f a b o u t 60 Bureau o f R e c l a n a t i o n and Bureau o f I n d i a n A f f a i r s

l / "Bet ter F e d e r a l C o o r d i n a t i o n Needed t o Promote More - E f f i c i e n t Farm I r r i g a t i o n , " RED-76-116, J u n e 2 2 , 1976 . "More and Better Uses Could B e Made o f B i l l i o n s o f G a l l o n s o f Wate r by Improving I r r i g a t i o n D e l i v e r y S y s t e m s , " CED-77-177, S e p t . 2 , 1977 .

APPENDIX V

i r r i ga t i on projec ts t o ident i fy def ic ienc ies i n f a c i l i t i e s and manaqement which r e s u l t i n i ne f f i c i en t water use. The s t u d y w i l l provide estimates of benef i t s and cos t s a s well a s the environmental and i n s t i t u t i ona l const ra in ts associated w i t h upgrading exis t ing f a c i l i t i e s and management pract ices .

AUGMENTATION OF THE COLORADO RIVER

Past s tud ies of the Colorado River Basin have concluded tha t water salvage and conservation programs can only delay, not prevent, water shortages from occurring i n the basin; therefore, addit ional water is needed t o meet fu ture demands. The Congress, i n passing the 1968 Colorado River Basin Project Act, recognized the need to augment the Colorado River by a t l e a s t 2 . 5 maÂ i n order t o meet the commitment t o Mexico and help meet the demand f o r addit ional water i n the basin.

A 1 9 6 8 House report on the Colorado River Basin indicated tha t water supply s tudies showed conclusively t h a t a ser ious water deficiency already existed i n the Lower Basin and t h a t as t h i s imbalance between requirements and supply continued t o grow, the water s i t ua t i on throughout the e n t i r e basin would become more and more c r i t i c a l . The repor t s t a ted :

'There i s no reasonable chance t h a t the Colorado River w i l l supply enough water t o meet the demands of the area which r e l i e s upon it . The water supply s i t u a t i o n , combined w i t h the f a c t t h a t there is insuf- f i c i e n t water i n the Colorado River t o f u r n i s h the amounts specif ied i n compacts, contrac ts , the Mexican Water Treaty, and the Supreme Court decree i n Arizona v s . Cal ifornia, means continued controversy accompanied by economic stagnation unless there is augmentation of the water supplies avai lable from the r i ve r . There can be no l a s t i ng solut ion t o the water problems and disputes of t h e s t a t e s of the Colorado River Basin without the addit ion of more water." I/

The committee concluded t h a t the most urgent and fundamental water resource issue before the Congress involved i n i t i a t i n q plans and procedures t o resolve the water supply deficiency of the e n t i r e basin.

l/Report No. 1312 on B i l l HR 3000, House of Representatives - 90th Conq., 2nd sess . , prepared by the House Committee on i n t e r i o r and Insular Affa i rs , 1968. ..


The House v e r s i o n o f t h e Co lo rado R i v e r Bas in P r o j e c t b i l l d i f f e r e d from t h e S e n a t e ' s i n t h a t i t would have d i r e c t e d i n v e s t i g a t i o n s o f ways t o augment t h e r i v e r . The S e n a t e b i l l e x c l u d e d any s t u d i e s i n v o l v i n g w a t e r i m p o r t a t i o n i n t o t h e b a s i n a s a r e s u l t o f p r e s s u r e f rom t h e P a c i f i c Nor thwes t , which was n o t p l e a s e d w i t h t h e i d e a o f s u p p l y i n g i t s w a t e r t o s o l v e t h e S o u t h w e s t ' s p rob l ems .

The House-Senate compromise b i l l t h a t was s i g n e d i n t o l a w i n 1968 a s t h e Co lo rado R i v e r Bas in P r o j e c t A c t d e a l t w i t h t h e need f o r augmen ta t i on s t u d i e s by d i r e c t i n g t h a t a q e n e r a l s t u d y b e made o f Wes te rn w a t e r s u p p l y p rob l ems b u t p r o h i b i t e d f o r 1 0 y e a r s a s t u d y o f w a t e r i m p o r t a t i o n i n t o t h e Co lo rado R i v e r Bas in .

I n A p r i l 1975 t h e Depar tment o f t h e I n t e r i o r i n i t s Westwide S t u d y Repor t s t a t e d :

"While t h e r e is ample w a t e r s u p p l y i n . t h e C o l o r a d o R i v e r t o meet c u r r e n t demands i n t h e r i v e r , w a t e r s h o r t a g e s w i l l d e v e l o p i n t h e n o t t o o d i s t a n t f u t u r e i f t h e d e s i r e s o f t h e b a s i n s t a t e s f o r g rowth o f w a t e r d e p e n d e n t deve lop - ments a r e r e a l i z e d * * * , To a s s u r e t h e a v o i d a n c e o f s e r i o u s w a t e r s h o r t a g e s i n t h e Co lo rado R i v e r B a s i n , p r o g r a n s t o augment r i v e r f l o w s o r t o o t h e r w i s e match w a t e r s u p p l y w i t h w a t e r demand s h o u l d b e i n o p e r a t i o n by t h e 1995-2000 time f rame * * * . ' I

I n t h e c o n f e r e n c e r e p o r t A/ o n t h e 1968 a c t , i t i s s t a t e d t h a t when t h e w a t e r s u p p l i e s and r e q u i r e m e n t s o f t h e Western Uni ted S t a t e s a r e d e t e r m i n e d , t h e S e c r e t a r y o f t h e I n t e r i o r s h o u l d t h e n p r o c e e d w i t h i n v e s t i g a t i o n s t o d e t e r m i n e t h e most e c o n o n i c a l means o f auqment ing t h e w a t e r s u p p l y o f t h e Co lo rado R i v e r . I n t h e p a s t " s e v e r a l i n d i v i d u a l s t u d i e s by t h e Bureau and o t h e r s have endeavo red t o e v a l u a t e v a r i o u s means by which t h e w a t e r s o f t h e C o l o r a d o R i v e r c o u l d be supp l emen ted f i n c l u d i n q w e a t h e r m o d i f i c a t i o n f v e g e t a t i o n management, d e s a l t i n g o f s e a w a t e r and g e o t h e r m a l b r i n e s , and i m p o r t a t i o n o f w a t e r from o t h e r r i v e r b a s i n s .

Weather m o d i f i c a t i o n

Weather m o d i f i c a t i o n i s o n e of t h e p r i n c i p a l methods t h e Bureau i s r e v i e w i n g a s a means o f augment ing t h e Co lo rado R i v e r . Weather m o d i f i c a t i o n i n t h e b a s i n i n v o l v e s u s i n g c l o u d s e e d i n g t o i n c r e a s e s n o w f a l l i n a h i g h moun ta in a r e a , t h e r e b y e n h a n c i n g s p r i n q and summer r u n o f f i n t o t h e

L / H . R . Conf. Rept . No 1 8 6 1 9 0 t h Cong. 2d s e s s . ( 1 9 6 8 ) . -

7 6


C o l o r a d o R i v e r . A s a r e s u l t o f t h e C o l o r a d o R i v e r Basin P r o j e c t Act, t h e Bureau i n 1968 e s t a b l i s h e d t h e C o l o r a d o R i v e r B a s i n P i l o t P r o j e c t * T h i s was a $6.5 m i l l i o n , 5 - y e a r w i n t e r r e s e a r c h p r o g r a n u n d e r t a k e n t o h e l p d e t e r m i n e the f e a s i b i l i t y of a u g m e n t i n g h i q h m o u n t a i n anowpack i n t h e San J u a n M o u n t a i n s i n s o u t h w e s t e r n C o l o r a d o by c l o u d s e e d i n g *

T h e r e h a v e b e e n c o n f l i c t i n g v i e w s a n d c o n s i d e r a b l e d e b a t e a s t o t h e r e s u l t s of t h e p r o j e c t , w h i c h was c o m p l e t e d i n A p r i l 1 9 7 5 , a s t o w h e t h e r o r n o t w i n t e r c l o u d s e e d i n g d o e s i n c r e a s e t h e snowpack enough t o i n c r e a s e s t r e a n f l o w s s i g n i f i c a n t l y i n t h e b a s i n . The e v i d e n c e i s n o t overwhe lming e i t h e r way. A s t a t i s t i c a l a n a l y s i s o f t h e p r o j e c t p e r - fo rmed by a n i n d e p e n d e n t c o n s u l t i n g f i r m showed t h a t t h e m e t h o d s a p p l i e d d u r i n q t h e p r o j e c t f a i l e d t o show a n y s t a t i s t i c a l l y s i g n i f i c a n t i n c r e a s e s i n p r e c i p i t a t i o n as a r e s u l t of the c l o u d s e e d i n g . The a n a l y s i s c o n c l u d e d t h a t t h e l a c k o f p o s i t i v e r e s u l t s was n a i n l y a r e s u l t o f m i s s e d f o r e c a s t s a n d i n n a n y cases s e e d i n g t h e wronq k i n d s of c l o u d s . The f i r m c o n c l u d e d t h a t a c o r r e c t l y d e s i g n e d a n d o p e r a t e d w i n t e r c l o u d s e e d i n g p r o q r a n h a s t h e p o t e n t i a l o f p r o d u c i n g s i g n i f i c a n t i n c r e a s e s i n p r e c i p i t a t i o n a n d s t r e a m f l o w .

A l t h o u g h t h i s r e s e a r c h h a s shown cloucl s e e d i n g t o b e more c o n p l e x t h a n was o r i q i n a l l y t h o u g h t , t h e B u r e a u a n d t h e N a t i o n a l W e a t h e r M o d i f i c a t i o n A d v i s o r y Board b e l i e v e t h a t i t i s a v i a b l e n e a n s of a u g m e n t i n g C o l o r a d o R i v e r s t r e a m f l o w from b o t h a t e c h n i c a l and economic v i e w p o i n t . Bureau and A d v i s o r y Board o f f i c i a l s b e l i e v e t h a t t h e r e s u l t s of t h e p i l o t p r o j e c t p r o v i d e s t r o n g e v i d e n c e t h a t a 10- t o 2 0 - p e r c e n t i n c r e a s e i n s e a s o n a l s n o w f a l l c a n b e a c h i e v e d i n t h e C o l o r a d o R i v e r B a s i n b y s e l e c t i v e l y s e e d i n g t h e warmer w i n t e r s t o r m s .

I n a J u n e 1978 r e p o r t l t h e A d v i s o r y Board s t a t e d t h a t o f a l l tile U.S. c l o u d s e e d i n g o b j e c t i v e s c o n s i d e r e d , t h a t o f i n - c r e a s i n g snowpack over t h e W e s t e r n m o u n t a i n s o f t h e U n i t e d S t a t e s rests o n t h e f i r m e s t theoret ica l and e x p e r i m e n t a l q r o u n d s . The a n n u a l p o t e n t i a l o f i n c r e a s i n g s t r e a m f l o w i n t h e b a s i n i s e s t i m a t e d a t a b o u t 1 . 6 n a f . P r e l i m i n a r y estimates of t h e cost of s u c h water would b e a b o u t $ 3 a n a c r e - f o o t .

I n a d d i t i o n t o t h e t e c h n i c a l q u e s t i o n s o f c l o u d s e e d i n q , t he re a r e n a n y unanswered q u e s t i o n s c o n c e r n i n g t h e s o c i a l , e c o n o m i c l l e q a l , and e n v i r o n m e n t a l r a m i f i c a t i o n s o f u s i n q c l o u d s e e d i n g t h a t n e e d t o b e s t u d i e d a n d r e s o l v e d b e f o r e t h i s n e t h o d c o u l d b e c o n s i d e r e d a f e a s i b l e a l t e r n a t i v e f o r a u g m e n t i n g t h e r i v e r . tfuch of t h e c o n t r o v e r s y o f u s i n q c l o u d s e e d i n g c e n t e r s a r o u n d t h e f o l l o w i n q q u e s t i o n s :

--What are t h e s h o r t - t e r m a n d 1o11g-term e n v i r o n m e n t a l i m p a c t s ?


--What a r e t h e f a r - r e a c h i n g e f f e c t s o n r e g i o n a l deve lopment?

--Who owns t h e new w a t e r and who s h o u l d p a y f o r t h e o p e r a t i o n a l c o s t s ? Who i s r e s p o n s i b l e f o r p o s s i b l e l i a b i l i t i e s ?

--How c a n l o c a l i z e d o p p o s i t i o n t o a g e n e r a l l y a c c e p t a b l e and needed p r o j e c t b e r e s o l v e d ?

--Who h a s t h e f i n a l d e c i s i o n m a k i n g a u t h o r i t y - - l o c a l g r o u p s , w a t e r and s o i l d i s t r i c t s , S t a t e a g e n c i e s , o r t i l e F e d e r a l Government?

To h e l p r e s o l v e t h e s e q u e s t i o n s and c e r t a i n o t h e r t e c h n i c a l and s c i e n t i f i c u n c e r t a i n t i e s o f c l o u d s e e d i n g , t h e Bureau is p r o p o s i n g a l a r g e - s c a l e d e m o n s t r a t i o n p r o g r a n f o r t h e Co lo rado R i v e r B a s i n . The p r i n c i p a l t h o u q h t beh ind t h e p roposed d e m o n s t r a t i o n program i s t h a t b e f o r e t h e B u r e a u c a n a s k f o r m a j o r d e c i s i o n s t o b e made o n a c o n t i n u i n g augnen- t a t i o n o f t h e Co lo rado R i v e r by c l o u d s e e d i n g , t h e c ~ p a b i l i t y t o p r o d u c e s u f f i c i e n t q u a n t i t i e s o f new w a t e r s h o u l d be t h o r o u g h l y d e m o n s t r a t e d .

The Co lo rado R i v e r Demons t r a t i on Program would i n v o l ~ e f u l l - s c a l e c l o u d s e e d i n g i n f i v e o f s i x m a j o r mounta in a r e a s i n t h e b a s i n f o r a 10-year p e r i o d . The s i x t h mounta in a r e a would s e r v e a s a c o n t r o l f o r e v a l u a t i o n . The programr i n c l u d i n g p l a n n i n q , o p e r a t i o n , and e v a l u a t i o n p would l a s t 1 4 y e a r s and c o s t a n e s t i m a t e d $ 3 6 . 6 m i l l i o n .

The Bureau h a s r e c e i v e d s u p p o r t f rom t h e b a s i n S t a t e s f o r t h e program b u t i s h a v i n g p rob l ems i n o b t a i n i n g l ong - r ange b u d g e t a p p r o v a l because o f c e r t a i n l e g a l i m p l i c a t i o n s . These i n v o l v e d e t e r m i n i n g who owns t h e new w a t e r p roduced and t h e p o s s i b l e impac t t h e d e c i s i o n would have o n t h e F e d e r a l Government b e i n g r e imbur sed f o r i t s i n v e s t m e n t o r p r o b e c t e d i n i t s r i g h t t o u s e t h e w a t e r t o meet a F e d e r a l o b l i q a t : on ,

' s u c h a s t h e Mexican Water T r e a t y *

S i n c e t h e d e m o n s t r a t i o n proqram was f i r s t p roposed i n l 9 7 s r t h e B u r e a u ' s p l a n n i n g h a s changed t o i n c l u d e a s m a l l c o n f i r m a t o r y e x p e r i m e n t s t e p p r i o r t o a n y l a r g e - s c a l e demon- s t r a t i o n t e s t . The main o b j e c t i v e o f s u c h a n e x p e r i m e n t would be t o p r o v i d e a v e r i f i c a t i o n o f snow i n c r e a s e s c a u s e d by s e e d i n g and r e s o l u t i o n o f t h e r e m a i n i n g t e c h n i c a l q u e s t i o n s .

V e g e t a t i o n management

A J u l y 1977 p r e l i n i n a r y s t u d y by t h e U.S. F o r e s t S e r v i c e E x t e n s i o n a t Ar i zona S t a t e U n i v e r s i t y f o r t h e P a c i f i c Sou thwes t


lnter-Agency Committee indicates a p o s ~ i b i l i t y . t h a t the bas in ' s water supply could be increased by about 1.5 maf per year through a process of regulating harvesting pat terns i n the commerical fo re s t s of watershed a reas* The procedure would r e s u l t i n increased snowpacks, which i n t u r n would i n - crease runoffs and streamflows. Cost estimates f o r t h i s addi- t iona l water supply range from l e s s than $2 per acre-foot t o over $50 per acre-foot* One study based on mid-1960 pr ices showed tha t while some of the water cos t s a r e high* the average for 83 percent of the water yield was l e s s than $9 per acre-foot.

The vegetation management procedure of harvesting i n commercial fo re s t s has not been demonstrated on a l a rge sca le , and more research would be required t o determine the ef fect iveness as well a s the environmental ramificat ions of such a program. If proven* i t would represent a lonq-term solut ion t o the water shortage problem.

According t o t h p Forest Service ' s studyI fo re s t harvesting management and weather modification a r e synergis t ic ; any increase i n precipi ta t ion brought about by weather modification, i f complemented by fo re s t harvesting management, would have greater e f f ec t than i f the two programs were implemented independently. The grea tes t augmentation po ten t ia l e x i s t s i n the subalpine fo re s t s of the Upper Basin. One l imi ta t ion of the program i s tha t f u l l implementation would take decades. Once f u l l y implemented, the program could be maintained indef- i n i t e l y t o provide a permanent augmentation source.

Desaltinq geothermal water and seawater

Star t ing i n 1968 the Bureau conducted a geothermal desal t ing program on the East Mesa i n Imperial Valley, California. Five deep geothermal wells were d r i l l e d t o depths of from 6 p 0 0 0 t o 81000 f ee t . The wells produced, a t the ground surface* hot l iquid and steam from 230 degrees t o 340 degrees Fahrenheit*

Small quant i t i es of freshwater were produced on a l imited scale from two small t e s t d i s t i l l a t i o n desal t ing uni ts . The Bureau a l so studied converting geothermal heat enerqy ta e l e c t r i c energy and u s i n g t h i s energy f o r desal t ing the geothermal f lu ids . The Bureau has ins ta l l ed a small h i g h - temperature e lec t rod ia lys i s u n i t t o t e s t t h i s process.

Bureau s tudies i n the Imperial Valley showed t h a t i t i s technologically b u t not economically feas ib le t o produce freshwater from desal t ing geothermal water. For exampleI r e s u l t s indicate t ha t geothernal d e s a 1 t i n g . i ~ technical ly feas ib le

tiPPL'NDIX V APPENDIX V

a n d t h a t a b o u t 75 p e r c e n t o f t h e w a t e r c o n t e n t o f t h e g e o t h e r m a l e n e r g y is a h e a t s o u r c e f o r a d i s t i l l a t i o n p l a n t . However, t h e r e p o r t s tates t h a t a v a i l a b l e d a t a i n d i c a t e s t h a t e c o n o r , i c f e a s i b i l i t y of d e v e l o p i n g the q e o t h e r m a l r e s e r v o i r f o r c i e s a l t i n g d o e s n o t a p p e a r c o m p e t i t i v e when c a n p a r e d t o p r e s e n t w a t e r c o s t s . I n o r d e r t o p r e v e n t s u b s i d e n c e , t h e B u r e a u h a s s t u d i e d i n j e c t i n g water b a c k i n t o t h e g e o t h e r m a l f o r m a t i o n . The B u r e a u estimates t h a t t h e cos t f o r t h e g e o t h e r m a l d e s a l t i n g would r a n g e f r o n $1 ,200 t o $1 ,500 a n a c r e - f o o t , d e p e n d i n g o n t h e s o u r c e f o r r e i n j e c t i o n w a t e r , f o r a d e s a l t i n g complex t o p r o d u c e 5 0 , 0 0 0 a c r e - f e e t o f f r e s h w a t e r a n n u a l l y . B e c a u s e o f t h e s e h i g h cos ts and low w a t e r y i e l d , t h e B u r e a u h a s t e r m i n a t e d i t s g e o t h e r m a l i n v e s t i g a t i o n s i n t h e I m p e r i a l V a l l e y b u t is l o o k i n q a t o t h e r p o s s i b l e b a s i n l o c a t i o n s .

D e s a l t i n q s e a w a t e r a p p e a r s t o b e too e x p e n s i v e t o m e r i t s e r i o u s c o n s i d e r a t i o n as a s o u r c e f o r l a r g e - s c a l e augmenta- t i o n i n t h e C o l o r a d o R i v e r . F o r e x a m p l e r i t v7as r e p o r t e d i n t h e Westwide S t u d y t h a t a t y p i c a l cos t f o r a d e s a l t i n q p l a n t w i t h a 4 0 - m i l l i o n - q a l l o n - a - d a y c a p a c i t y was $300 p e r a c r e - f o o t b a s e d o n 1972-73 p r i c e s . The 1 9 7 5 Westwide S t u d y i n c l u d e d t h e f o l l o w i n q s t a t e m e n t :

* ' S i n c e l 9 5 z r F e d e r a l s u p p o r t f o r r e s e a r c h and d e v e l o p m e n t o f d e s a l t i n g t e c h n o l o g y h a s p r o d u c e d many a d v a n c e s i n c l e s a l t i n q p r o c e s s e s s u c h a s d i s t i l - l a t i o n , r e v e r s e o s n o s i s r e l e c t r ~ d i a l y s i s ~ a n d f r e e z i n g . Most o f t h e s e p r o c e s s e s a r e now c o n s i d e r e d c o m m e r c i a l l y a v a i l a b l e f o r s e l e c t a p p l i c a t i o n s . However, d u e t o r e l a t i v e l y h i g h cos t s , l a c k o f e x p e r i e n c e , and p r e s e n t a v a i l a b i l i t y o f o t h e r w a t e r s u p p l y s o u r c e s r U n i t e d S t a t e s d e s a l t i n g a p p l i c a t i o n s h a v e b e e n s l o w compared t o c u r r e n t w o r l d w i d e e x p e r i e n c e . "

To r e d u c e s a l i n i t y i n t h e C o l o r a d o R i v e r r t h e B u r e a u is p l a n n i n q c o n s t r u c t i o n o f a 9 6 - m i l l i o n - g a l l o n - a - d a y d e s a l t i n g complex n e a r Yunar A r i z o n a r t o d e s a l t i r r i q a t i o n r e t u r n f l o w f rom t h e Wellton-Mohawk I r r i q a t i o n a n d D r a i n a g e D i s t r i c t i n A r i z o n a b e f o r e r e t u r n i n g t h e w a t e r t o t h e r i v e r . I t i s e s t i m a t e d t h a t t h e p r o d u c t w a t e r f rom t h i s p l a n t w i l l c o s t a r o u n d $338 p e r a c r e - f o o t b a s e d o n J u l y 1977 p r i c e s . T h e a v e r a g e s a l i n i t y l e v e l s o f t h e Wellton-Mohawk d r a i n a g e w a t e r i s a b o u t 3 ,200 p a r t s p e r m i l l i o n a s c o n p a r e d t o 3 5 , 0 0 0 p a r t s p e r m i l l i o n ' f o r s e a w a t e r .

I m p o r t i n g w a t e r i n t o t h e b a s i n

The Bureau h a s n o t s t u d i e d i m p o r t a t i o n o f s u r p l u s w a t e r s f r o m a r e a s o u t s i d e t h e b a s i n b e c a u s e o f a 1 0 - y e a r n o r a t o r i u n


on such s tudies included i n the 1968 Colorado River Basin Project Act. This moratorium was recently extended another 1 0 years i n the Bureau of Reclamation Safety of Dama Act. I n 1973 t h e National Water Commission said tha t the f e a s i b i l i t y of interbasin t ransfers increases a s (1) economic demand for water increases, ( 2 ) available water supplies i n areas of shortage shrink, ( 3 ) technological capabil i ty improves, and ( 4 ) national income grows. The Commission recommended tha t interbasin t ransfers should not be undertaken u n l e s s the net economic gain fo r t h e area receiving the water would more than o f f s e t the economic lo s s t o the area losing it.

Certain Sta te and Federal o f f i c i a l s believe tha t while it may be technologically feasible, i t might not be economically, po l i t i ca l ly , o r socia l ly possible t o import water t o the Colorado River Basin from outside the basin. One Bureau o f f i c i a l s ta ted that water importation might be economically feas ible i f enough high-quality water could be imported t o mix w i t h the water i n the Lower Basin t o improve i ts qual i ty s ignif icant ly and t h u s eliminate the need of spending millions of do l la rs for s a l i n i t y control projects .

APPENDIX V I

S A L I N I T Y CONTROL ACT PROJECTS

APPENDIX VI

(ACTIVE) - AUTHORIZED FOR CONSTRUCTION

PARADOX VALLEY

P a r a d o x V a l l e y , l o c a t e d i n s o u t h w e s t e r n C o l o r a d o , h a s b e e n i d e n t i f i e d by t h e Bureau of R e c l a m a t i o n as a s i g n i f i c a n t n a t u r a l c o n t r i b u t o r t o s a l i n i t y i n t h e C o l o r a d o R i v e r B a s i n . Ground w a t e r c o n e s i n c o n t a c t w i t h t h e t o p o f a s a l t f o r m a t i o n i n t h e v a l l e y and s u r f a c e s a s s a l t b r i n e i n t h e c h a n n e l o f t h e D o l o r e s R i v e r . The Bureau e s t i m a t e s t h a t t h e Dolores R i v e r p i c k s u p a b o u t 200,000 to 250,000 t o n s o f s a l t a n n u a l l y i n P a r a d o x V a l l e y a n d d e p o s i t s i t i n t o t h e C o l o r a d o R i v e r . The P a r a d o x V a l l e y p r o j e c t is e s t i m a t e d t o r e d u c e t h e a n n u a l s a l t i n f l o w t o t h e C o l o r a d o R i v e r by 1 8 0 , 0 0 0 t o n s .

The Bureau h a s b e e n c o n d u c t i n g tests t o p r e p a r e d e s i g n a n d c o n s t r u c t i o n d a t a f o r t h e P a r a d o x V a l l e y u n i t . I t has ' been h a v i n q p r o b l e m s i n f i n d i n g p r o p e r l o c a t i o n s f o r t h e b r i n e wells t h a t will e n a b l e i t t o pump o u t s u f f i c i e n t q u a n t i t i e s o f b r i n e w a t e r t o e l i m i n a t e t h e n a t u r a l b r i n e i n f l o w i n t o t h e r i v e r s . A December 1976 s t a t u s r e p o r t s t a t e d t h a t t h e r e s u l t s o f p u n p i n q t e s t s p e r f o r n e d o n 3 o f t h e 1 8 wel ls a u t h o r i z e d f o r c o n s t r u c t i o n showed n o c o n c l u s i v e e v i d e n c e o f a n y c h a n q e i n t h e s a l i n i t y c o n t e n t o f t h e Dolores R i v e r .

P r e l i m i n a r y t e s t i n q h a s b e e n c o m p l e t e d , and B u r e a u o f f i c i a l s b e l i e v e t h a t t h e w e l l s a re now p r o p e r l y p o s i t i o n e d and t h a t t e s t i n g o f a l l t h e wells a s a u n i t w i l l p r o v e t h e p r o j e c t t o be e f f e c t i v e i n r e d u c i n g s a l i n i t y i n t h e D o l o r e s R i v e r by t h e a n o u n t e s t i m a t e d . T e s t i n q b e g a n i n O c t o b e r 1 9 7 8 a n d is p l a n n e d t o c o n t i n u e f o r a p p r o x i n a t e l y 2 y e a r s .

LAS VEGAS WASH

The Las Veqas Wash i s a n a t u r a l c h a n n e l w h i c h d r a i n s t h e e n t i r e Las Veqas V a l l e y w a t e r s h e d a r e a of 2 ,200 s q u a r e m i l e s and d i s c h a r g e s i n t o Lake Mead. The Bureau e s t ima tes t h a t t h e Las Vegas Wash c o n t r i b u t e s a b o u t 2 0 0 , 0 0 0 t o n s o f s a l t a y e a r t o t h e C o l o r a d o R i v e r s y s t e m .

The Las Vegas Wash u n ' i t was i n i t i a l l y e x p e c t e d t o r e d u c e t h e a n n u a l s a l t l o a d t o t h e r i v e r b y a b o u t 1 3 1 , 0 0 0 t o n s a n d b r i n g a 1 3 n q / 1 s a l i n i t y r e d u c t i o n a t I m p e r i a l Dan. However, l a t e r s t u d i e s show t h a t t h e u n i t w i l l r e d u c e t h e s a l t l o a d t o t h e r i v e r o n l y by a b o u t 8 3 , 0 0 0 t o n s a n n u a l l y f o r a s a l i n i t y r e d u c t i o n a t I m p e r i a l Dan o f 9 nq/1 . C o n s t r u c t i o n c o s t s f o r t h e p r o j e c t a t t h e same t i m e have e s c a l a t e d f r o m $ 4 9 . 6

APPENDIX VI APPENDIX V I

mil l ion t o $56.5 million. These cos t s do not include preauthorization invest igat ion cos t s and in t e r e s t during construction.

Bureau representat ives explained t h a t one main reason f o r the lower than expected s a l t load reduction was an e r r o r i n estimating the r a t e which a highly s a l i n e ground water mound under evaporation ponds would d i s s ipa t e due t o l in ing the ponds. The ponds a r e used t o evaporate water e f f l uen t s from an indus t r i a l plant. The ground water mound t h a t developed under these ponds s ign i f i can t ly contributed t o the s a l t inflow t o the wash.

The ground water was i n i t i a l l y estimated t o take 30-40 years t o d i s s ipa te . However, a f t e r f u r the r study, the Bureau now estimates t h a t the d i s s ipa t ion w i l l take only 3 years and w i l l be completed before the Las Vegas Wash pro jec t is operational. The Bureau i s delaying construction t o study the projec t fu r ther .

GRAND VALLEY

The Grand Valley, located i n west-central Colorado, was carved i n a high salt-bearing marine shale (Mancos shale) formation. Four i r r i ga t i on e n t i t i e s i n the val ley d ive r t water from the Colorado River t o i r r i g a t e about 71,500 acres, including approximately 38,000 acres under Federal projec ts . A l l sources of re turn flow i n the Grand Valley are estimated t o contr ibute an average of about 700,000 tons of s a l t annually t o the Colorado River system. Most of these s a l t s a r e thought t o be leached from the s o i l and underlying Mancos shale and washed i n t o the r i v e r by deep percolation and water del ivery system seepage losses .

The Bureau i n i t i a l l y estimated t h a t the projec t would reduce s a l t loading i n the r i v e r by about 200,000 t o 280,000 tons per year , b u t i t has revised t h i s est imate up- ward t o about 410,000 tons. However, the r e l i a b i l i t y of these estimates has not been firmly establ ished. Certain Bureau o f f i c i a l s question the ef fec t iveness of the s a l i n i t y control measures f o r the proposed Grand Valley projec t because there a r e no r ea l assurances the methods used w i l l reduce the s a l t load by the amounts estimated. They s ta ted t ha t the theory behind these methods has proven mathematically successful b u t t h a t the Bureau has l i t t l e or no hard t e s t data from the Grand Valley t o support the s a l t reduction estimates.

Segments o r groups of the Bureau, Agricultural Research Service, So i l Conservation Service, Colorado Water Conser- vation Board, and Colorado Sta te University ( C S U ) have

APPENDIX VI APPENDIX V I

b e e n i n v o l v e d i n s t u d y i n g s a l i n i t y c o n t r o l i n t h e Grand V a l l e y . I n t h e e a r l y 1 9 7 0 s t h e s e g r o u p s f o r m e d t h e Grand V a l l e y S a l i n i t y C o o r d i n a t i n g Committee t o c o o r d i n a t e t h e i r a c t i v i t i e s .

T h e s e g r o u p s e s s e n t i a l l y a g r e e t h a t a b o u t 7 0 0 , 0 0 0 t o n s o f s a l t a r e c o n t r i b u t e d a n n u a l l y b y t h e v a l l e y . However , CSU e s t i m a t e s t h a t t h e amoun t o f s a l t from c a n a l s e e p a g e i s a b o u t 9 0 , 0 0 0 t o n s less a n d ' f r o m o n f a r n p e r c o l a t i o n i s a b o u t 7 0 , 0 0 0 t o n s more t h a n t h e committee's e s t i m a t e . CSU d i f f e r s w i t h t h e connit tee a b o u t t h e a m o u n t o f s a l t c o n t r i b u t e d d u e t o s e e p a g e f r o m t h e Grand V a l l e y c a n a l s y s t e n a n d c o n t e n d s t h a t nos t o f t h e s a l t b e i n g p i c k e d u p i n t h e s e areas i s f r o m h i g h g r o u n d w a t e r t a b l e s r a t h e r t h a n f r o m c a n a l s e e p a g e .

E c o n o n i c f e a s i b i l i t y o f t h e i n d i v i d u a l s a l i n i t y c o n t r o l m e a s u r e s p r o p o s e d f o r t h e v a l l e y v a r i e s c o n s i d e r a b l y . Compar ing e a c h n e a s u r e ' s c o s t - e f f e c t i v e n e s s w i t h b e n e f i t s t o b e d e r i v e d by d o w n s t r e a n u s e r s r a i s e s q u e s t i o n s a b o u t t h e c o s t - e f f e c t i v e n e s s a n d how much s h o u l d b e i n v e s t e d i n e a c h o f t h e p r o p o s e d m e a s u r e s . The f o l l o w i n q s c h e d u l e shows t h e c o n t r o l m e a s u r e s i n t h e B u r e a u ' s p l a n s f o r Grand V a l l e y . A s shown, l i n i n g o f l a t e r a l s - I/ I r r i g a t i o n Management S e r v i c e s , 2/ a n d o n f a r m i m p r & e n e n t s a p p e a r t o b e nore e f f e c t i v e ~ i n t e r n s o f cos t a n d t o n s o f s a l t removed-- than l i n i n q o f c a n a l s .

E s t i m a t e d t o n s C o n t r o l o f s a l t E s t i m a t e d m e a s u r e r e d u c e d --- cost - --

C a n a l l i n i n g 1 1 0 L a t e r a l l i n i n q 170 IMS & o n f a r n

i m p r o v e m e n t s 1 3 0

A May 1977 p u b l i c a t i o n s p o n s o r e d by E P A r e c o r d e d t h e r e s u l t s o f a CSU p r e l i m i n a r y a n a l y s i s o f t h e b e s t n a n a q e n e n t p r a c t i c e s f o r s a l i n i t y c o n t r o l i n Grand V a l l e y . The

l / L a t e r a l s a r e t h e p a r t of a g r i c u l t u r a l w a t e r c o n v e y a n c e - s y s t e m s t h a t c u t a c r o s s f a r m i n g p l o t s .

2/IMS i s a s y s t e m a t i c d e t e r m i n a t i o n of when a n d how much - t o i r r i g a t e .

APPENDIX VI APPENDIX VI

r e s e a r c h e r s c o n c l u d e d t h a t f r om a n economic s t a n d p o i n t c a n a l l i n i n g would b e o n l y m a r g i n a l l y f e a s i b l e and would depend o n t h e costs a s s i g n e d t o downs t ream damages f rom s a l i n i t y .

Ano the r u n c e r t a i n t y f a c i n g t h e p r o j e c t i s t h e IMS program; t h e Bureau may have t r o u b l e g e t t i n g f a n n e r s t o u s e t h i s s y s t e m . One Grand V a l l e y d i s t r i c t n o t i f i e d t h e Bureau t h a t i t h a s n o d e s i r e t o p a r t i c i p a t e i n t h e IMS program. A l s o , IMS would be l i m i t e d i n c o n t r o l l i n g s a l i n i t y i n Grand V a l l e y u n d e r e x i s t i n g o n f a r m c o n d i t i o n s . F u r t h e r m o r e , t h e S o i l C o n s e r v a t i o n S e r v i c e h a s been u n s u c c e s s f u l i n s e c u r i n g $23.6 m i l l i o n i n f u n d i n g n e c e s s a r y t o c a r r y o u t a n on fa rm improvement p rogram.

L a r g e l y b e c a u s e o f t h e s e p r o b l e m s , t h e Bureau i s b e h i n d s c h e d u l e i n c o n s t r u c t i n g t h e p r o j e c t , d e s p i t e b e i n g u n d e r c o n s i d e r a b l e p r e s s u r e f rom t h e S t a t e s . I n a n a t t e m p t t o s t a r t c o n s t r u c t i o n and d e m o n s t r a t e t o l o c a l r e s i d e n t s t h e typ'e o f c o o r d i n a t e d improvements c o n t e m p l a t e d , t h e Bureau p l a n s t o s e l e c t a s m a l l a r e a o f a b o u t 7 , 0 0 0 a c r e s , i n s t e a d o f t h e whole p r o j e c t , t o implement t h e p rogram.

Depending o n t h e r e s u l t s o f t h i s p i l o t , t h e Bureau w i l l d e c i d e w h e t h e r t o g o ahead w i t h t h e res t o f t h e project. C e r t a i n o f f i c i a l s f r om t h e b a s i n S ta tes and t h e Bureau b e l i e v e t h a t t h e whole p r o j e c t s h o u l d b e c o m p l e t e d r e g a r d l e s s o f t h e r e s u l t s o f t h e p i l o t p r o j e c t and t h e economic f e a s i b i l i t y o f t h e v a r i o u s m e a s u r e s .

APPENDIX V I I APPENDIX VII

I N D I A N WATER RIGHT CLAIMS

T h e r e a r e I n d i a n w a t e r r i g h t c l a i m s i n t h e b a s i n t h a t have n o t been s e t t l e d . We h a v e b r i e f l y summarized a few o f t h e s e below.

FIVE COLORADO R I V E R I N D I A N RESERVATIONS ARE UNHAPPY WITH CURRENT ALLOCATIONS

I n t h e Supreme C o u r t d e c r e e o f 1964 ( A r i z o n a v . C a l i f o r n i a , 376 U.S. 340, 343-345) , b e s i d e s u p h o l d i n g a l l o c a t i o n s o f w a t e r s t o t h e s u b - b a s i n s and S t a t e s , t h e C o u r t a l l o c a t e d w a t e r t o f i v e r e s e r v a t i o n s t h a t b o r d e r t h e t h e Co lo rado R i v e r i n t h e L o w e r B a s i n . I n d i a n w a t e r r i g h t s were measured i n t e r n s o f t h e " p r a c t i c a b l y i r r i g a b l e ac r eage ' ' on t h e r e s e r v a t i o n s i n v o l v e d . The a n n u a l a l l o c a t i o n s were a s f o l l o w s .

I r r i g a b l e , A c r e - f e e t R e s e r v a t i o n a c r e s o f w a t e r

Chemehuevi 1 , 9 0 0 Cocopah 431 Yuna 7 ,743 Co lo rado R i v e r 107 ,588 F o r t Mohave 18 ,974

T o t a l 905,496

We were informed t h a t t h e I n d i a n s o n t h e s e r e s e r v a - t i o n s a r e d i s s a t i s f i e d w i t h t h e Supreme C o u r t a l l o c a t i o n and a r e c o n s i d e r i n g f u t u r e a c t i o n s t o o b t a i n g r e a t e r w a t e r a l l o c a t i o n s . The I n d i a n s b e l i e v e t h a t t h e a c r e a g e a s s e s s m e n t used t o q u a n t i f y t h e i r w a t e r r i g h t s d i d n o t c o n s i d e r a l l o f t h e i r r i g a b l e a c r e a g e o n t h e r e s e r v a t i o n s . The I n d i a n s a r e a l s o unhappy t h a t c e r t a i n r e s e r v a t i o n l a n d s and c e r t a i n l a n d s i n v o l v e d i n r e s e r v a t i o n boundary d i s p u t e s were n o t i n c l u d e d .

The c o n t r o v e r s y o v e r c l a s s i f i c a t i o n o f I n d i a n l a n d s a s i r r i g a b l e c e n t e r s a round t h e economic f e a s i b i l i t y o f i r r i g a t i n g s u c h l a n d s . The l a n d s u r v e y u sed by t h e C o u r t c o n s i d e r e d economic f e a s i b i l i t y . The Bureau o f I n d i a n A f f a i r s ( B I A ) and t h e I n d i a n t r i b e s b e l i e v e t h a t s u c h economic c o n s i d e r a t i o n s s h o u l d n o t b e a c o n s t r a i n t i n c l a s - s i f y i n g I n d i a n l a n d a s i r r i q a b l e .

We were informed t h a t a BIA-sponsored s o i l s u r v e y o f t h e s e I n d i a n l a n d s conduc t ed i n 1975 by p r i v a t e c o n s u l t a n t s i n c r e a s e d t h e t o t a l i r r i g a b l e a c r e a g e f o r t h e f i v e

APPENDIX v I I APPENDIX V I I

r e s e r v a t i o n s by 50 ,000 acres. T h i s s u r v e y d i d n o t c o n s i d e r economic f e a s i b i l i t y i n d e t e r m i n i n g t h e i r r i g a b l e a c r e a g e f i g u r e . Accord ing t o a B I A o f f i c i a l , t h e I n d i a n s r e j e c t e d t h e s u r v e y ' s r e s u l t s and i d e n t i f i e d a d d i t i o n a l l a n d p a r c e l s t h a t t h e y want i n c l u d e d i n a n y d e t e r m i n a t i o n o f i r r i g a b l e a c r e s .

NAVAJO TRIBES ARE CLAIMING 5 MAP

The Nava jo R e s e r v a t i o n encompasses 25,000 s q u a r e miles and i s l o c a t e d i n p a r t s o f A r i z o n a , N e w Mexico, and Utah . The e n t i r e r e s e r v a t i o n l i e s w i t h i n t h e C o l o r a d o R i v e r B a s i n , w i t h p o r t i o n s o f t h e Co lo rado and San J u a n R i v e r s f o r m i n g t h e n o r t h e r n boundary . The L i t t l e C o l o r a d o R i v e r f l o w s i n t o t h e C o l o r a d o f r o n t h e s o u t h w e s t e r n p a r t o f t h e r e s e r v a t i o n .

Under t h e W i n t e r s d o c t r i n e , t h e Nava jo I n d i a n s now claim a l l t h e w a t e r r e a s o n a b l y n e c e s s a r y t o i r r i g a t e a l l p r a c t i c a b l y . i r r i g a b l e a c r e a g e o n t h e r e s e r v a t i o n . The Nava jos b e l i e v e t h a t t h e y have a n e n t i t l e m e n t f rom t h e Upper and Lower C o l o r a d o R i v e r B a s i n s of a t l e a s t 5 m i l l i o n a c r e - f e e t o f w a t e r . Accord ing t o B I A o f f i c i a l s , t h e t r i b e h a s t r i e d t o o b t a i n a s m a l l p a r t o f t h e 5 maÂ by f i l i n g s u i t i n N e w Mexico S t a t e C o u r t t o a c q u i r e t h e i r e n t i t l e m e n t t o San J u a n R i v e r w a t e r . They s t a t e d t h a t t h e Nava jos are c o n t e m p l a t i n g o t h e r s u i t s p e n d i n g t h e outcome o f t h e San J u a n case.

Ar i zona S t a t e o f f i c i a l s a r g u e t h a t t o e s t a b l i s h t h e I n d i a n e n t i t l e m e n t as t h e Supreme C o u r t i n t e n d e d , t h e p r a c t i c a b l y i r r i g a b l e a c r e a g e m u s t be d e t e r m i n e d a t t h e time t h e r e s e r v a t i o n was e s t a b l i s h e d . On t h i s b a s i s , t h e y f i n d i t d i f f i c u l t t o b e l i e v e t h a t t h e Nava jo I n d i a n s o r U.S. Government c o n t e m p l a t e d i r r i g a t i n g t h e h i g h p l a t e a u a r e a s o f t h e r e s e r v a t i o n when i t was e s t a b l i s h e d i n 1868.

CENTRAL ARIZONA RESERVATIONS

I n d i a n s l o c a t e d o n f i v e r e s e r v a t i o n s i n c e n t r a l A r i z o n a have a s s e r t e d c l a i m s t o g r e a t e r q u a n t i t i e s t h a n t h e y p r e s e n t l y r e c e i v e o f g round w a t e r and s u r f a c e w a t e r f r o n c e n t r a l A r i z o n a r i v e r s , s u c h a s t h e Verde , S a l t , and G i l a . These w a t e r s a r e b e i n g used by o r have been a l l o c a t e d , g e n e r a l l y , t o non - Ind i an w a t e r u s e r s . The I n d i a n s c o n t e n d t h a t t h e Government f a i l e d t o p r o t e c t t h e i r w a t e r r i g h t s and h a v e a s s e r t e d c o m p e n s a t i o n c l a i m s f o r w a t e r f rom t h e , C o l o r a d o R i v e r t o b e d e l i v e r e d by t h e C e n t r a l A r i z o n a P r o j e c t t o make up f o r t h e i r o r i q i n a l w a t e r r i g h t s .

A s a r e s u l t , i n O c t o b e r 1976 t h e S e c r e t a r y o f t h e I n t e r i o r r u l e d t h a t t h e c e n t r a l A r i z o n a I n d i a n r e s e r v a t i o n s were e n t i t l e d t o r e c e i v e a f i r m s u p p l y o f 257,000 a c r e - f e e t

APPENDIX V I I APPENDIX V I I

p e r y e a r o f CAP w a t e r , a s shown i n t h e f o l l o w i n g t a b l e , f o r t h e f i r s t 20 y e a r s o r u n t i l 2005, wh icheve r o c c u r s f i r s t .

R e s e r v a t i o n Acre-f e e t

Ak Chin 58,300 F o r t McDowell 4,300 G i l a R i v e r 173,100 Papago 8 ,000 S a l t R i v e r 13 ,300

T o t a l

A f t e r 2005, t h e I n d i a n s w i l l r e c e i v e e i t h e r 20 p e r c e n t o f t h e a g r i c u l t u r a l w a t e r o r 10 p e r c e n t o f t o t a l p r o j e c t w a t e r , whichever is t o t h e i r advan t age .

The t r i b e s a r e p r o t e s t i n g t h e d e c i s i o n and a r e c l a i m i n g s u b s t a n t i a l l y i n c r e a s e d amounts o f CAP w a t e r . I n 1976 and 1977 , two I n d i a n r e s e r v a t i o n s , t h e G i l a R i v e r and t h e S a l t R i v e r r e s e r v a t i o n s , f i l e d l a w s u i t s o v e r t h e m a t t e r , c l a i m i n g s i g n i f i c a n t i n c r e a s e s i n t h e a c r e s o f r e s e r v a t i o n l a n d t h a t c o u l d b e i r r i g a t e d . I t i s e s t i m a t e d t h a t t h e two s u i t s , i f s u c c e s s f u l , would i n c r e a s e t h e w a t e r c l a i m e d by t h e two r e s e r v a t i o n s by a b o u t 1 .3 maÂ£

L e g i s l a t i o n was i n t r o d u c e d i n 1976 and 1977 t h a t p roposed t o s e t t l e t h e w a t e r r i g h t s c l a i m s o f t h e c e n t r a l Ar i zona I n d i a n s t h r o u g h a c q u i s i t i o n and t r a n s f e r o f e x i s t - i n g w a t e r r i g h t s t o t h e I n d i a n s . The S e c r e t a r y o f t h e I n t e r i o r would b e a u t h o r i z e d t o a c q u i r e , e i t h e r by p u r c h a s e o r condemnat ion a t f a i r ma rke t v a l u e , 170,000 a c r e s o f non- I n d i a n l a n d w i t h s u r f a c e w a t e r r i g h t s , i n v o l v i n g a b o u t 1 maf o f w a t e r . The w a t e r r i g h t s would be t r a n s f e r r e d to t h e I n d i a n s i n s e t t l e m e n t o f t h e i r c l a i m s . One a r e a t o b e c o n s i d e r e d f o r p u r c h a s e o r condemnat ion was a p p r o x i m a t e l y 65,000 a c r e s o f t h e Wellton-Mohawk I r r i g a t i o n and Dra inage D i s t r i c t o f t h e G i l a P r o j e c t n e a r Yuma, A r i z o n a .

The p e o p l e owning, l i v i n g on , a n d / o r f a r m i n g t h e l a n d s o f t h e Wellton-Mohawk D i s t r i c t o b j e c t t o t h e a r r angemen t f o r s o c i a l and economic r e a s o n s . V a r i o u s o f f i c i a l s from t h e S t a t e o f A r i z o n a o b j e c t e d t o t h e p r o p o s a l t o t r a n s f e r o v e r 90 p e r c e n t o f t h e d e p e n d a b l e s u p p l y o f C e n t r a l Ar i zona t o t h e r e s e r v a t i o n s , p o i n t i n g o u t t h a t s u c h a q u a n t i t y c o u l d n e v e r have been deve loped by t h e I n d i a n s from s t r e a m s f low- i n g t h r o u g h o r b o r d e r i n g t h e r e s e r v a t i o n , a c o n d i t i o n o f t h e W i n t e r s d o c t r i n e . However t h e s e o f f i c i a l s d o a g r e e t h a t t h e c l a i m s of t h e c e n t r a l Ar i zona t r i b e s s h o u l d b e q u a n t i f i e d

APPENDIX V I I APPENDIX V I I

f o r a l l time and b e l i e v e t h a t t h e l e g i s l a t i v e app roach o f f e r s a b e t t e r o p p o r t u n i t y f o r an e q u i t a b l e and t i m e l y s o l u t i o n t o t h e p rob l ems t h a n d o e s t h e j u d i c i a l p r o c e d u r e .

A f t e r h e a r i n g s o n t h e p roposed l e g i s l a t i o n , I n t e r i o r h a s been n e g o t i a t i n g w i t h I n d i a n and non- Ind ian r e p r e s e n t a - t i v e s t o r e s o l v e t h e i r d i f f e r e n c e s . Some p r o g r e s s h a s been made, s u c h a s o n t h e Ak-Chin I n d i a n Community C l a i m s d i s c u s s e d below. I n a d d i t i o n , a s o f Sep tember 1 2 , 1978,, n e g o t i a t i o n s a r e c o n t i n u i n g w i t h t h e o t h e r I n d i a n communi t i es to r e a c h a g r e e m e n t s which w i l l most l i k e l y resu l t i n l e g i s l a t i v e p r o p o s a l s .

Papago T r i b e ' s c l a i m to ground w a t e r

The U n i t e d S t a t e s , on b e h a l f o f t h e Papago T r i b e , ' whose r e s e r v a t i o n is l o c a t e d i n s o u t h - c e n t r a l A r i z o n a n e a r Tucson , f i l e d s u i t i n 1975 a g a i n s t t h e C i t y o f Tucson and c e r t a i n p r i v a t e companies t o e n j o i n them from e x c e s s i v e pumping o f g round water, which t h e s u i t c l a i m s i s i n f r i n g i n g on t h e t r i b e ' s s u r f a c e and ground w a t e r s u p p l y . The s u i t a l s o s e e k s damages from t h e d e f e n d a n t ' s use o f s u r f a c e and g r o u n d , w a t e r i n d e r o g a t i o n o f t h e P a p a g o ' s c l a i m e d r i g h t s and d e c l a r a t i o n o f t h e t r i b e ' s w a t e r r i g h t s i n t h e Upper S a n t a Cruz R i v e r Bas in .

Depar tment o f t h e I n t e r i o r a t t o r n e y s p l a n t o amend t h i s l a w s u i t t o i n c l u d e a l l e g a t i o n s t h a t t h e t r i b e ' s g round w a t e r s u p p l i e s h a v e been i n f r i n g e d upon i n v i o l a t i o n o f t h e W i n t e r s d o c t r i n e . T h i s i s b a s e d o n an I n t e r i o r i n t e r - p r e t a t i o n o f a 1976 Supreme C o u r t r u l i n g i n t h e c a s e o f C a p p a e r t v . U n i t e d S t a t e s , 426 U.S. 128 ,138 ( 1 9 7 6 ) t h a t t h e d o c t r i n e o f F e d e r a l r e s e r v e w a t e r r i q h t s a p p l i e d to ground w a t e r . I t is t h e p o s i t i o n o f s e v e r a l w e s t e r n S t a t e s t h a t t h i s d e c i s i o n a p p l i e d o n l y t o s u r f a c e w a t e r , n o t t o g round w a t e r . Ak-Chin I n d i a n Community 's c l a i m s

On J u l y 28 , 1978 , P u b l i c Law 95-328 was p a s s e d t o s e t t l e w a t e r r i g h t c l a i m s o f t h e Ak-chin I n d i a n Community a g a i n s t t h e Un i t ed S t a t e s . The l e g i s l a t i o n p r o v i d e s f o r t h e a n n u a l t r a n s f e r o f 8 5 , 0 0 0 a c r e - f e e t o f g round w a t e r f rom n e a r b y F e d e r a l l a n d s u n t i l a permanent s u p p l y o f w a t e r is p r o v i d e d .

APPENDIX VIII APPENDIX VI I1

United States Department of the Interior OFFICE OF THE SECRETARY

WASHINGTON, D.C. 20240

M r . Henry Eschwege J f l Y 1979 D i r e c t o r , Cai'iium.ty and

E d c Development Division General Accounting Of Â£ic Washington, DC 20548

Dear M r . Eschwsge:

This is in response to your October 23, 1978, letter to the Secretary requesting our ccninents on the GAO Draft Report, "Colorado River Basin Water Problems: Proposals to Reduce Their Impact."

Althouqh the report contains a number of misconceptions which need to be corrected, it generally presents a thorough and objective analysis of the water supply problems in the Colorado River Basin. The report, however, does fa i l to recognize the complex nature of the Colorado River Basin water supply problems, especially with regard to the Basin States' water related interests and water rights. The concepts of total water management studies and a river basin conroission have been presented to the Basin States before, and have always been rejected. For example, a Cooperative Federal-State Study Group has been working since June 1978 to prepare studies to define the urgency of developing a hydrologic basis and procedures for determining section 602 (a) storage requirements of Public Law 90-537, Colorado River Basin Project Act, Septentoer 30, 1968, but ini t ial responses indicate that the States do not believe development of such procedures is urgent a t this tine.

Although the Bureau of Reclamation has planned, financed, and constructed many major water development projects in the basin, a l l the water controlled by those projects is still subject to State water right laws, ccmpacts, or decrees. Therefore, Reclamation must always work in cooperation with the Sta t e s in attempting to solve water related problems.

We refer you to the statement on page 68 of the draft report, "State water officials have claimed that the river is a State m a t t e r and not to be operated for the benefit of the basin as a whole or the Nation. The bas-in States do not believe sufficient incentives are available to cause them to manage their water resources on a basinwide basis" (emphasis added). That statement aptly describes the problem that has faced the Department of the Interior over the past decade in seeking to study basinwide management of the Colorado River. The studies to

APPENDIX VI I I A P P E N D I X VIII

quantify the incentives have never been made because the States do not believe that sufficient incentives are available. The potential for inproved m a n a w t cited in the draft report is largely of a qualitative nature, and the actual benefits to the State and to the Nation have not been quantified. We believe that quantification of those benefits is in the best interests of the States and the Nation. Accordingly, GftD nay wish to consider the viability of the draft reoamnendath to the Congress that a basil-wide State-Federal n~nage- ment entity be established. Without prior quantification of the benefits, lack of cooperation from essential parties could thwart needed itianaqeraent efforts. After water from the Colorado River starts being used in 1985 for the Central Arizona Project, basin interests will see that a water shortage will eventually cone. At that time they will be less able to negotiate from a viewpoint of equity, and instead will probably take a litigative attitude of protecting their own interests. Thus, an atmosphere conducive to reaching basic agreements will only exist for a few more years, and we sui=port GAD'S conclusion that now is an ideal time to seek resolution of unsettled controversies.

Representatives of Reclamation's regional offices and E&R Center have informally provided coiroents on the report to GAO representatives at previous meetings, and while their general cannents have been incor- porated in this letter, most of the specific ccnroents provided at those meetings are not included. At a November 27, 1978, meeting in our off ice, GBO representatives indicated they wuld consider those specific connents in preparing the final report. The following connents were discussed at the November 27, 1978, meeting:

Page iv, par. I--Indian water rights development is possible, but many questions exist. Most projects would take 20-30 years to be developed, and many of those projects may not be economically feasible under present criteria for justifying investments in water resources developments. For the potential "1/3 of all the water in the basin" referenced by GftO as being claimed by Indian interests to be developed, a significant shift in national priorities would be required to subsidize classically infeasible developments. The President ' s water policy has stressed a negotiated solution in which quantification is acoanpanied by development, and this nay alter the situation favorably.

2 It is true that there are no specific plans for con- uuty after 1990, but that does not mean the salinity ---

control proqram will end at that time. The Colorado River Water Quality Jiqmmmmt Program is an ongoing program to identify needed salinity control activities. Also, 208 studies under Public Law 92-500 are identifying additional salinity and quality control activities.

APPENDIX VIII APPENDIX VI I 1

Page v, par. 1 and Page 51, par. 2Ã‘Th smaller size of the desalting plant is the result of irrigation efficiency iirprovement and acreage reductions which have decre&d the volume of drainage. The size was reduced intentionally to reduce costs of the plant.

Pages 3 h 6--The scope of the Supreme Court. Decision, Arizona v. W i k o m = limited to an interpretation of water r i g h t s m % h e Boulder Canyon Project Act, and only adjudicated main stem waters. Tributary flows are not included. There are existing mechanisms for apportioning water during periods of shortages in the Arizona V. California Decree, in the Colorado River Basin Project Act (~ublic Law 90-537), and in the 1944 Mexico Water Treaty.

Pages 11 and 12--Terms such as "virgin flew," "average annual virgin tlw, " "future virgin flow, " "dependable yield, " and "actual records, " are used interchangeably but all have different meanings. We suggest that G?W clarify or standardize this temtnoloqy.

Reclamation's estimates for annual Lee Ferry flow are: 14.8 million acre-feet (maf) long-term average virgin flow, and 14.05 maÂ dependable yield. Tree ring hydrology is not yet considered a reliable and proven procedure for estimating historical flows.

page 14, par. 2--The upper basin development level of 5.8 m f does not go with "the downstream and power storage cunnitments," but is derived fm the flow that would be available for upper basin use with an annual 8.25 maÂ Lee Ferry delivery.

pi e 15 Reclamation's dependable yield projection which is derived frmafitical period analysis of streamflow is very conservative. Representatives of sane basin States feel it is too conservative for use in establishing storage requirements for protecting future uses.

29 st he costs of implementing water conservation measures often the benefits and the overall potential appears to be small. w-

-fore, GftO may wish to c0nsi.d~ those aspects before indicating that such measures "could lessen the mct of future shortages."

Reclamation is not using an "overly optimistic estimateM has actually .used the worst historical experience,

with the storage capability of the basin's reservoirs, to determine the dependable yield.

page 39 others--All benefit values cited are based on the old value of $230,000 milligram per liter which was developed in 1974 and should increase a I'Iew value is available.

A P P E N D I X V I l ' I A P P E N D I X VIII

Paqe 42, par. 2---The salinity detrintent in dollars per milligram per liter of salidty at Imperial Dam is one measure of the benefits of salinity control. While it is true that we do not use those values in a benefit-cost type of analysis, they are used as a measure of the effectiveness of the project.

2 -Crystal Geyser was deferred primarily because of high costs not use of its minor inpact. -- Page 44, par. 1 and Page 53, par. 1-Late appropriations have not been a factor in schedule delays on either the Title I or the Title I1 program & indicated.

Page 44, par. 2Ã‘Th salinity control program has been treated more ike pollution control programs, where the most cost-effective procedures are implemented rather than applying "feasibility" or "benefit-cost" s-. It was not anticipated by the chngress that the salinity control program would meet feasibility criteria.

Page 45, par. 3-Reclamation is proceeding with plans for units which may require desalting. The studies will evaluate alternatives and the most cost-effective alternative selected. Therefore, those units mentioned are still being considered.

Paqe 50, par. 1Ã‘W suggest changing the phrase ". . . closure of Glen Canyon Dam . . .I1 to " . . . elimination of consistent over deliveries to Mexico . . . " to make the statement more accurate.

Page 52, par. 2-Fish and wildlife mitigation costs of nearly $10 million are not mentioned as a significant part of the cost increase in the Salinity Control Program.

Page 54, . I-A specific study authorized by Public Law 93-320 is tnxkmay Etmd a maris of replacing the brine stream water. It is not a part of a basin augmentation plan.

Paqes 55 and 59--This discussion ignores the water that would be bypassed prior to the inplenentation of an augmentation program and the U.S. obligation to replace that water. It also ignores the legal and institutional questions associated with water derived through weather modification. We suggest adding same discussion of those problems.

Page 55, par. 3--The changes in salinity reduction of the program as now envisioned are not major. In addition, we are adding new projects (such as Meeker Dome) as we find reasonable ones which should maintain or increase the salinity reduction capability of the program.

APPENDIX VII 1 APPENDIX VIII

Pa 57, par. 1Ã‘Whe discussing alternatives bo the Yiana desalting st, it shouldbe kept in& that: (1) thewater l o s t w e implementing any alternative must be replaced, and ( 2 ) the ~rcwnell task force cancluied that the a m t w i t h W c o is a riatiawl obligation and thus should be met by using dollars rather than water (which costs only the Basin States).

IV, paqe 111, par. 2, and Paqe 56, par. 2~Raclanatim is construction ot the Las Vegas Wash Unit to further study

the project in the light of

A C ~ iw

recent develmts. n

Ai-^PErn x 2 APPENDIX I X

REF: 8W-WP

Mr. Henry Eschwege, Director Cuununity & Economic Development Division United States General Accounting Office Washington, D.C. 20548

Dear Mr. Eschwege:

Attached are the Environmental Protection &encyqs coinnents on the Draft GAO Report, Co10-~ve; ?in Water ~1~ : Foposals to ReduceTheir act. A~ t o ese co~~ients was previously submitted to r xman of your staff. These comments reflect the position of EP* Hea the J2A Regions involved with the Colorado River Basin.

EPAts principal concerns are the analyses and recommendations regarding the institutional aspects of water planning and management and salinity issue. EPA believes that a strengthening, with possible redirec- tion, of existing Colorado River Basin entities would have a greater pay off, at this time, than would the creation of a new entity. With regard to the salinity problem, EPA believes it is essential that all parties involved with Colorado River salinity acknowledge their responsibilities for achieving appropriate, cost-effective solutions to the salinity problem.

We hope the attached comnents will assist preparing the final report on these very complex and controversial issues.

Man Merson Regional Administrator

Attachment

cc: Thomas C. Jorling, Hdflts . Adlene Harrison, Regional Administrator, Reg. VI Paul DeFalco. Jr., Regional Administrator, Reg. IX

APPENDIX I X A P P E N D I X I X

s tatus of water development efforts relative to the status of the sal in i ty control program a t the time the standards were adopted. However, a s an overall sal ini ty control policy, EPA has previously indicated that a sal inity mi tigation policy should be maintained to assure that numerical cr i ter ia for sal inity i n the lower main stem w i l l not be exceeded. This policy would require that any development project which increased salinity must be accompanied by a decrease in salinity in some other part of the Basin, which, a t a minimum, would equal the expected increase.

This policy i s based on the conclusions and recommendations of the reconvened 7 t h Session of the Conference i n the Matter of Pollution of theTnterstate Waters of the Colorado River and its Tributaries adopted by the seven Basin States and the Federal Government on April 27, 1972, and the salinity control policy, procedures, and requirements for establishing water quality standards for salinity in the Colorado River pronntlgated i n the Federal Re i s te r on December 18, 1974 (39 FR 43721). M a i n t a i n i n g i s -%- pc icy would provide an equitable solution for sa l in i ty control. Although current efforts in salinity control are not proceeding as expeditiously as in i t i a l ly envisioned, the requirement for offsetting measures would prevent sal inity aggravating activit ies from proceeding faster than controls. Further- more, this policy would ensure continuing salinity control beyond 1990.

(2) "Hie GAO report states that studies conducted by the Bureau of Reclamation indicate that sal inity levels are expected to range from 970 mg/1 to 1000 mg/1 a t Imperial Dam during the period 1990 to 2000. However, this concentration range is dependent on certain supply/depletion assumptions. In any event, the GAO report indicates that there are no plans for sal inity control beyond 1990.

. This position of planned degradation is inccnipatible with the conclusions and recommendations of the Conference mentioned i n Comnent No. (1) , the Federal Register sal inity standards promul- gation, and the salinity standards developed by the Forum, adopted by the States and approved by P A .

(3) The GAO report does not acknowledge current sal inity control efforts which are being developed as a result of nonpoint source control through implementation of Best Management Practices as part of the Section 208 (Clean Water Act) water quality manage- a n t planning program, and point source control through the NPDES p e w t program.

@A has identified salinity as a high priori ty for 208 Water Quality Maria enent Planning in the Colorado River Basin. For example, the Clar f County 208 Areawide Water Quality Management Plan indicates that s a l t contributions from irrigated agriculture in the Lower Virgin River Valley and Moapa Valley i n northeastern Clark County, Nevada may be significantly reduced a t a considerably greater cost effective-

A P P E N D I X I X APPENDIX IX

ness than the proposed Bureau of Reclamation Lower Virgin River Unit of the Colorado River Water Quality bnprovenient Program.

Irrigated agriculture i s the major man-induced contributor to Colorado River Salinity. EPA sponsored research has demonstrated the existence of cost-effective solutions to salinity caused by irrigated agriculture. (A l i s t of recent Irrigated Agriculture - Water Quality Control Publications is attached.) EPA believes that implementation of these measures should proceed rapidly.

The GAO Report should acknowledge the NPDES/Salinity policy. Under this existing policy, NPDES permits issued to industrial discharges require no sal t return wherever practicable. Municipal permits, similarly, require salinity reductions from major municipalities.

Accordmg to the GAO report, EDF has proposed establishing state- line salinity standards a t locations upstream from Hoover Dam. GAO should note that efforts are currently underway to establish baseline salinity values a t twelve monitoring stations upstream from Hoover Dam and are expected to be essentially complete in early 1979. Baseline values w i l l represent 1972 salinity levels a t the monitoring points. Any shift in baseline values a t any - toring station would be evidence of stream changes that 1, could Ie to lower main stem standards v olations, and therefore identify the need for control measures to assure compliance with the lower main stem standards . It must be emphasized, however, that these baseline values w i l l not be water quality standards, but an effective method of indicating the possibility of downstream violations and allowing for sufficient opportunity to correct potential downstream problems before they occur.

Preliminary studies, completed for the Bureau of Reclamation, of the Colorado River Indian Reservation and the Palo Verde Irriga- t i m District indicated that irrigation distribution system iqmveinents (canal and lateral lining) would have l i t t l e inpact on salt contributions to the Colorado River. However, the Bureau of Reclamation approach i s not being relied on as the only salinity control program in the area. SCS studies are expected to show on-farm improvements to be cost effective and show a positive impact on salinity reduction in the Colorado River.

The roost counterproductive report recommendation is on page 57. Rather than dela salinity control efforts authorized by to h mlm?%d by the Bureau of Rexlamtion and others%;: should be accelerated evaluation, plauming and construction of cost effective salinity. control projects. Those projects found during evaluation and planning to be ineffective in salinity control and/or not cost effective should be replaced a t an early date with projects that satisfy these requirements. Federal responsibility, as acknowledged in the Colorado River Basin Salinity Control Act (P.L. 93-320), must not be abdicated.

APPENDIX IX APPENDIX I X

EPA OOM4ENTS ON DRAFT GAO REPORT, COLORADO RIVER BASIN WATER PROBLBB: PROPOSALS TO R f i D U f f l A C T

Following are EPA's comments on the Draft GAD Report, Colorado River Basin Water Problems : Proposals to Reduce Their Impact. These conments are in addition to the items discussed during the brief meeting between representatives of our staff and GAO in Denver on November 17, 1978.

While the GAD study touches upon numerous cr i t ical water resources issues in the Colorado River Basin, EPA feels that there are two principal policy issues which are particularly cr i t ical as well as sensitive. First are the institutional aspects of water planning and decision making in the basin. And second is the salinity problem and alternative solution to the problem. These particular concerns must be approached in a thought- ful and comprehensive manner i f progress is to be made in dealing with these issues. EPA also has some comnents on other issues addressed i n the Draft 'Report.

Institutional Aspects of Water Planning and Decision Making

The GAO report reconinends establishing a Federal-State task force to develop solutions to Colorado River Basin problems. Several groups already exist that could satisfy this description, e.g. the Colorado River Basin Salinity Control Forum, with Federal participation in an advisory capacity, the Upper Colorado River Comnission with additional participation by the Lower Basin States and the Federal Government, and, especially, the Colorado River Interagency Salinity (iontrol Comnittee.

I t would seem that redirecting the efforts of these enti t ies toward solution of the basin problems would be more effective than establishing bother group. EPA sees potential merit in having a Congressional mandate directed to the existing enti t ies to examine the following:

- strengthening existing interagency efforts, - the balance of local, state, and national interests, - nonstructural alternatives to water problems, - water conservation opportunities, - environmental concerns (water quality, f ish and wildlife, National

Parks and Monuments, etc .) and water decisions.

In summary, EPA believes that, a t this time, wore progress can be made through a strengthening of existing State/Federal/Interagency efforts than could be achieved by a new decision making body.

The Colorado River Salinity Problem

EPA has some major concerns with the GAO treatment of the salinity problem in the Colorado River.

(1) The salinity standards permit temporary increases in salinity in recognition of the hydrologic variability in the basin and the

A P P E N D I X I X

d

A P P E N D I X IX

Additional Comnents

We agree with the GAD finding that water plans in the Colorado River Basin should be based on realist ic water supply/ demand projections. The projections must be sensitive to and reflect valid social, economic, political , and environmental concerns. Priority should also be assigned to specifying cr i ter ia for the declaration of water shortages, and reservoir storage and operation during low flow periods.

The GAO report asserts that augmentation is the only viable long tern solution to future water shortages in the Basin. Ixqmrting water from other hydrologic regions, however, is probably the least desirable solution from social, economic, political, and environmental standpoints. Salinity control is much more effective since the water quality problem is essentially reduced to a financial/economic question.

Inyortim; water would probably result in localizing the benefits of

these s ernes within parts of the Colorado River Basin, aggravating the current Colorado River Basin problems in the remainder of the Basin, and exporting a portion of the current Basin problems to areas located outside the Basin. In l ight of the fact that several Basin States intend to or are already exporting portions of their allocated waters to other river basin systems, it is counterproductive for GAD to recommend import of water from other basin systems to augment Colorado River Basin resources.

The report could be strengthened i f GAO were to present a table, early in the report, of anticipated or predicted water use needs by the year 2000. (Quoting "most" authorities as agreeing that there w i l l be a shortage is not sufficient.

The water use entitlements to states under various decrees are discussed in depth, but it does not appear, especially early in the report, that current water uses or allocated reserves are l isted by each state. Such tables would place the problems in better prospective.

On pages 65-70, fatal water management as conceived by the Bureau of Reclamation has been reconmended as a panacea for Colorado River Basin salinity control problems. Although water management studies should be a part of the solution and several studies have been completed for the Basin by various Federal agencies during previous years, a "total water management stud/' probably won1 t resolve the basic issues any better than the previous studies but merely justify delaying implementation of identified cost- effective salinity control actions.

Attachment

APPENDIX IX APPRNPIX I X

RECENT IRRIGATED AGRICULTURE HATER QUALITY CONTROL PUBLICATIONS

I n t e g r a t i n g Desalination and Agricul tura l S a l i n i t y Control A1 t e rna t ives ; EPA- 6 O O / Z - 78- 0 74,'Apri 1 1978 ,

I d e n t i f i c a t i o n and I n i t i a l Evaluation of I r r i g a t i o n Return Flow Models; EPA-600/2-78-144, July 1978

Implementation of Agricul tura l S a l i n i t y Control Technology i n Grand Valley; EPA-600/2-78- 160, July 1978

Evaluation of I r r i g a t i o n Methods f o r S a l i n i t y Control i n Grand Valley; EPA-600/2-78- 161 , July 1978

V e s t Management Prac t i ces" f o r S a l i n i t y Control i n Grand Valley; EPA- 600/2- 78- 162, July 1978

Socio-Economic and Ins t i t u t i o n a l Factors i n I r r i g a t i o n Return Flow Qua1 i t y Control : Volume I-flethodology; EPA-600/2-78-174a, August 1978

Socio-Economi c I n s t i t u t i o n a l Factors i n I r r i g a t i o n Return Flow Quality Control : Volume 11- Yakima Valley Case Study; EPA-600/2-78-174b, August 1978

- Socio-Economic and Ins ti t u t i o n a l Factors i n I r r i g a t i o n Return Flow Qua1 i t y Control : Volume Ill-Middl e Rio Grande Valley Case Study; EPA-600/2-75-174c, August 1978

Socio-Economic and I n s t i t u t i o n a l Factors i n I r r i g a t i o n Return Flow Quality Control : Volume IV-Grand Val ley Case Study; EPA-600/2-78-174d, August 1978

Western Mater Laws and I r r i g a t i o n Return Flow; EPA-600/2-78-180, August 1978

APPENDIX X APPENDIX X

INTERNATIONAL BOUNDARY AND WATER COMMISSION UNITED STATES AND MEXICO

I B W C BUILDING 41 10 RIO BRAVO

EL PASO, TEXAS 7M02

NOV 2 8 1978

M r . Richard J. Gannon Supervisory Audit Manager U.S. Government Accounting O f f i c e S u i t e 1010, World Trade Center Los Angeles, C a l i f o r n i a 90071

Dear Mr. Gannon:

I r e f e r t o your c a l l on November 20 ask ing t h i s S e c t i o n f o r comments on t h e GAO D r a f t Report ( R e s t r i c t e d t o O f f i c i a l Use), on t h e "Colorado River Basin Water Problems: Proposals and Their Impact". A copy of t h e r e p o r t was furnished t o me by t h e Regional D i r e c t o r , Bureau of Reclamation, Boulder Ci ty , Nevada.

s i n c e t h e j u r i s d i c t i o n of t h i s Commission wi th r e s p e c t t o t h e Colorado River is l i m i t e d t o t h e boundary reach of t h e River and more s p e c i f i - c a l l y t o t h e p rov is ions of t h e 1944 Treaty r e l a t i n g t o t h e d e l i v e r i e s of Colorado River waters t o Mexico and agreements reached thereunder , t h e comments of t h i s Sec t ion a r e l i m i t e d t o t h e r e l a t e d p a r t s of t h e D r a f t Report , and p a r t i c u l a r l y t o t h e s ta tements r e l a t i n g t o t h e United S t a t e s commitment t o Mexico i n t h e Agreement reached August 30, 1973, f o r a "Permanent and D e f i n i t i v e S o l u t i o n t o t h e I n t e r n a t i o n a l Problem of t h e S a l i n i t y of t h e Colorado River", Minute No. 242 of t h i s Commission, which agreement was approved by t h e P r e s i d e n t s of t h e two Governments.

This Sec t ion must oppose t h e recommendation on page 57 t h a t t h e Congress d e l a y Federa l funding f o r t h e Yuma D e s a l t i n g Complex t o re-evaluate i t s f e a s i b i l i t y and t o cons ider o t h e r " l e s s c o s t l y a l t e r n a t i v e s " t o f u l f i l l t h e United S t a t e s commitment t o Mexico r e l a t i n g t o t h e s a l i n i t y of t h e wate rs of t h e Colorado River d e l i v e r e d t o Mexico, f o r t h e fo l lowing reasons :

1) Each of t h e a l t e r n a t i v e s r e f e r r e d t o i n t h e D r a f t Report was considered by t h e Interagency Task Force cha i red by Ambassador Herber t -Brownel l as S p e c i a l Represen ta t ive of t h e P r e s i d e n t , and was r u l e d o u t as n o t - b e i n g f e a s i b l e f o r economic o r p o l i t i c a l reasons o r both. To be s u r e , i n f l a t i o n has inc reased t h e c o s t of t h e d e s a l t i n g p l a n t , b u t so a l s o i n f l a t i o n has inc reased t h e

APPENDIX X APPENDIX X

c o s t of the a l t e r n a t i v e s . There a r e a l s o o the r inc reases i n c o s t s f o r the desa l t ing p lan t but even so , t h i s Section under- s tands from Bureau of Reclamation s t u d i e s t h a t t h e d e s a l t i n g opt ion is the most v i a b l e today as i t d i d i n 1973.

2) This Section cannot agree with the statement i n the Draf t Report t h a t the option of bypassing Wellton-Mohawk d r a i n waters and s u b s t i t u t i n g f o r them o the r Colorado River water "now appears t o be f eas ib l e . " Replacement of the Wellton-Mohawk d r a i n r e t u r n s whether about 200,000 acre- fee t per year a s c u r r e n t l y , o r 167,000 acre- fee t per year as is proposed, would e f f e c t a s i g n i f i c a n t reduction i n the a l ready s h o r t supply of Colorado River waters . The point emphasized most i n the Draf t Report is the s h o r t supply and the%ypass option would make i t worse. It was i n recogni t ion of t h i s f a c t t h a t Ambassador Brownell made the commitment t o the Basin S t a t e s t h a t so lu t ion of the s a l i n i t y problem with Mexico should not cause a reduct ion i n t h e i r water supply. H i s recommendation t o the Congress was made on t h i s b a s i s , and the Congress, a f t e r c a r e f u l cons idera t ion of the b a s i s f o r the recommendation, approved i t a s the means of implementing the agreement wi th Mexico i n Publ ic Law 93-320.

3) With the d e s a l t i n g p l a n t , the Bureau r e p o r t s an unavoidable bypassing of 42,000 acre- fee t of t h e b r i n e waters (not 67,000 acre- fee t ) t o the Gulf of Ca l i fo rn ia , bu t by the terms of Publ ic Law 93-320, the Congress requi red t h a t replacement of a l l such waters be recognized a s a n a t i o n a l ob l iga t ion , r e f l e c t i n g i t s concurrence i n Ambassador Brownell's b a s i s f o r h i s recommendation a s we l l a s i ts own concern t h a t t h e r e be no permanent l o s s of waters t o the Basin S t a t e s because of the se t t lement with Mexico.

4 ) The Draf t Report mentions est imated c o s t s of augmenting stream flows a s low a s $3 an acre-foot bu t t h i s Sect ion is not aware of any t e c h n i c a l l y Froven and v a l i d means of augmentation a t any such cos t . The only r e a l i s t i c a l l y a v a i l a b l e means known t o t h i s Sect ion t o augment s tream flows would be importat ion of water t o the bas in , and t h e c o s t s would approach o r exceed t h e d e s a l t i n g cos t s . Moreover, importat ion is now and f o r years t o come, p o l i t i c a l l y i n f e a s i b l e . 5) Care should be used i n r e f e r r i n g t o t h e t o t a l est imated c o s t s of the desa l t ing p l a n t and r e l a t e d f e a t u r e s a s amounting t o $334 mi l l ion , because most of the r e l a t e d f e a t u r e s , which make up 47 percent of the t o t a l , would be needed without the d e s a l t i n g p lan t i t s e l f , which i s est imated t o c o s t $178 mi l l ion . Severa l of t he o the r f a c i l i t i e s , some a l ready b u i l t , w i l l s e rve a u s e f u l purpose i n conserving United S t a t e s waters of the Colorado River.

APPENDIX X A P P E N D I X X

6 ) Each y e a r ' s de l ay i n c o n s t r u c t i o n and ope ra t i on of t h e d e s a l t i n g p l a n t imposes t h e s e r i o u s r i s k of annua l l o s s e s of wa t e r t o t h e Basin S t a t e s rang ing from some 200,000 ac r e - f ee t a s c u r r e n t l y t o about 167,000 a c r e - f e e t i n t h e f u t u r e . With a d e s a l t i n g p l a n t , t h e r e would be on ly a temporary l o s s of t h e 42,000 ac r e - f ee t per yea r , r e s u l t i n g i n immediate sav ings of 158,000 t o 125,000 ac r e - f ee t . To no t e f f e c t such sav ings a t t h e e a r l i e s t p r a c t i c a l d a t e would be con t r a ry t o t h e commitment made t o t h e Basin S t a t e s by Ambassador Brownell and t o t h e w i l l of t h e Congress f o r implementation of t h e s a l i n i t y agreement w i t h Mexico.

The re fo r e , t h i s Sec t i on must oppose any de lay i n Fede ra l funding f o r t he Yuma Desa l t i ng Complex. Ra ther , t h e Sec t i on must u rge e a r l i e s t p o s s i b l e funding of t h e au thor ized works i n keeping wi th t h e Execut ive and Congress iona l commitment t o t h e Basin S t a t e s t h a t implementation of t h e s a l i n i t y agreement no t cause them t o l o s e wa t e r s .

While t h i s Sec t i on is d i r e c t l y concerned w i th t h e p a r t s of t h e D r a f t Report r e l a t i n g t o f u l f i l l m e n t o f t h e s a l i n i t y agreement wi th Mexico, i t i s a l s o concerned wi th t h e p a r t s of t h e D r a f t Report r e l a t i n g t o t h e con- t r o l of s a l i n i t y of t h e wa t e r s of t h e Colorado River upstream from Impe r i a l Dam. Th i s concern i s founded on t h e view t h a t should t h e s a l i n - i t y of t h e upstream wa te r s no t be c o n t r o l l e d a s contemplated under T i t l e II of Pub l i c Law 93-320, we would have t o a n t i c i p a t e , i n t ime , ano the r s e r i o u s s a l i n i t y problem wi th Mexico. Therefore , l i k e Ambassador Borwnell and t h e Department of S t a t e a t t h e hea r i ngs b e f o r e t h e Congress, t h i s Sec t i on con t i nues t o suppor t a program f o r c o n t r o l of s a l i n i t y of t h e Colorado River upstream from Imper ia l Dam.

This S e c t i o n a l s o wishes t o comment on the s t a t emen t i n t h e D r a f t Report on page 5 l i n e 4 : The 1944 Trea ty was amended--to p rov ide f o r wa t e r of a s p e c i f i c s a l i n i t y con t en t . Ra ther , i n 1973, an agreement was reached under an i n t e r p r e t a t i o n of t h e T r e a t y , t o r e q u i r e t h e United S t a t e s t o d e l i v e r water t o Mexico having a s a l i n i t y on ly somewhat h ighe r t han t h e s a l i n i t y of Colorado River wa t e r s reach ing Impe r i a l Dam.

We n o t e s e v e r a l t e c h n i c a l s t a t emen t s i n t h e D r a f t Report which appear q u e s t i o n a b l e b u t b e l i e v e t h e Bureau of Reclamation is more q u a l i f i e d t o comment on t hose s ta tements .

We a p p r e c i a t e t h e oppor tun i ty t o review t h e D r a f t Report and would be g l ad t o meet wi th you i f you d e s i r e t o c l a r i f y t h i s S e c t i o n ' s p o s i t i o n .

S i n c e r e l y ,

APPENDIX XI APPENDIX XI

STATE OF N E V A D A

DIVISION OF COLORADO RIVER RESOURCES

P.O. Box 1 9 0 0 0

L A S VEGAS N E V A D A 8 0 1 18 TELEPHONE (70.21 733-7788

December 3 , 1978

M r . Henry Eschwege, D i r e c t o r Community and Economic Development Div is ion Uni ted S t a t e s General Accounting O f f i c e Washington, DC 20548

S u b j e c t : Proposed D r a f t - "Colorado River Basin Water Problems: Proposa l s t o Reduce The i r Impact"

Dear M r . Eschwege:

We a p p r e c i a t e d r e c e i v i n g a copy of your proposed d r a f t r e p o r t e n t i t l e d "Colorado River Basin Water Problems: Proposa l s t o Reduce Their Impact" on November 13, 1978. We wish t o thank you f o r t h e oppor tun i ty of commenting on t h i s r e p o r t p r i o r t o i t be ing f i n a l i z e d . A d d i t i o n a l l y , we a p p r e c i a t e d o u r meeting with Messrs. C a r l Bannerman, Larry H a r r e l l , Richard Cannon and Noel Lance a t which time we had t h e oppor tun i ty of e x p r e s s i n g our op in ion concerning t h i s d r a f t r e p o r t .

Inasmuch a s our agency does no t have t h e necessary manpower t o provide a d e t a i l e d page-by-page and l ine-by- l ine review of your r e p o r t , i t is o u r i n t e n t i o n t o d i r e c t our comments t o t h e conc lus ions o u t l i n e d i n t h e r e p o r t . However, we d i d n o t e s e v e r a l g l a r i n g e r r o r s i n t h e t e x t . We t r u s t t h a t a p p r o p r i a t e c o r r e c t i o n s w i l l be made d u r i n g your review p r o c e s s .

A review of t h i s r e p o r t i n d i c a t e s t h a t c o n s i d e r a b l e e f f o r t was d i r e c t e d a t documenting p r e s e n t and f u t u r e Colorado River wate r supply and s a l i n i t y problems. However, i n doing s o we f e e l t h a t t h e r e p o r t completely mis represen ts t h e complexity of t h e i s s u e s a s s o c i a t e d wi th t h e s e problems. This o v e r s i m p l i f i c a t i o n h a s l e d t h e a u t h o r s t o c o n c l u s i o n s t h a t f a i l t o recognize t h e long-range i m p l i c a t i o n s upon t h e Colorado River Basin s t a t e s .

There a p p a r e n t l y is a lack of unders tand ing r e l a t i v e t o t h e wate r r i g h t s and s a l i n i t y i s s u e s a s s o c i a t e d with t h e Colorado River Basin by t h e a u t h o r s . The r e p o r t i n d i c a t e s t h a t t h e Federa l Government has planned, f i n a n c e d , and cons t ruc ted a l l of t h e major s t o r a g e dams, power p l a n t s and r e l a t e d c a n a l systems i n t h e Basin. However, t h e r e p o r t f a i l s t o recognize t h a t t h e Federa l Government does not own o r c o n t r o l any water t h a t i s not s u b j e c t t o s t a t e water laws, compacts o r decrees . Therefore , w e must conclude t h a t s t a t e s ' r i g h t s , a s wel l a s o t h e r l e g a l and environmental, r e s t r a i n t s have not been a p p r o p r i a t e l y cons idered i n t h i s r e p o r t .

A DIVISION OF THE DEPARTMENT OF ENERGY

APPENDIX XI

Mr. Henry Eschwege, D i r e c t o r Community and Economic Development D i v i s i o n Uni t ed S t a t e s G e n e r a l Accoun t ing O f f i c e

December 8, 1978 Page 2

The r e p o r t i m p l i e s t h a t due t o l a c k of c o o p e r a t i o n between t h e s and t h e s t a t e and f e d e r a l a g e n c i e s , p l a n n i n g e f f o r t s have been f r agmen ted and c r i s i s o r i e n t e d . T h i s h a s r e s u l t e d i n r i s i n g s a l i n i t y l e v e l s , s o l u t i o n s t h a t a r e n o t economic, c o n f l i c t s between f e d e r a l and s t a t e o b j e c t i v e s , and i n e f f e c t i v e management of t h e Basin .

The r e p o r t t hen c o n c l u d e s t h a t Bas in s t a t e s and f e d e r a l a g e n c i e s must be b rough t t o g e t h e r u n d e r a management agency t h a t cou ld e x e r c i s e t h e n e c e s s a r y a u t h o r i t y i n o r d e r t o s o l v e a l l o f t h e Bas in problems and c o n f l i c t s . I t is o u r f i r m b e l i e f t h a t c h i s c o n c l u s i o n w i l l n o t s e r v e t o r e s o l v e t h e a fo remen t ioned problems. I n o r d e r t o s u b s t a n t i a t e o u r p o s i t i o n , we r e s p e c t f u l l y p o i n t o u t t h e f o l l o w i n g f a c t s :

The t a l e n t , e x p e r t i s e , and c a p a b i l i t i e s of t h e p e o p l e i n t h e s e v e n s t a t e s and t h e F e d e r a l Government who a r e a l r e a d y i n v o l v e d w i t h t h e w a t e r p l a n n i n g and s a l i n i t y i s s u e s is u n q u e s t i o n e d . These i n d i v i d u a l s have been work ing t o r e s o l v e t h e s e p rob lems under a c o o p e r a t i v e work ing a tmosphere f o r many y e a r s . The p roposed t a s k f o r c e o r d e c i s i o n and p l a n n i n g o r g a n i z a t i o n s would more t h a n l i k e l y b e composed of t h e same i n d i v i d u a l s who have r e p r e s e n t e d t h e F e d e r a l Government and s t a t e s i n t h e p a s t .

When t h e r e i s a need f o r c o o p e r a t i o n between t h e s t a t e s and t h e F e d e r a l Government , such c o o p e r a t i o n h a s i n t h e p a s t a lways been o b t a i n e d . The re h a s been f u l l c o o p e r a t i o n and j o i n t a c t i o n t o r e s o l v e s u c h problems a s s a l i n i t y c o n t r o l , n e g o t i a t i o n s f o r ag reemen t a s t o p r e s e n t p e r f e c t e d r i g h t s , r i v e r management o p e r a t i o n , f l o o d c o n t r o l r e g u l a t i o n s , s t a n d a r d s f o r w a t e r q u a l i t y , t h e r e s o l u t i o n o f p rob lems c o n c e r n i n g t h e d e l i v e r y , of w a t e r t o Mexico, e t c .

When i t comes t o t h e p rob lems f a r i n g e a c h i n d e p e n d e n t s t a t e , t h a t s t a t e , t h rough i t s compentent r e p r e s e n t a t i v e s , w i l l t a k e e v e r y measure n e c e s s a r y i n o r d e r t o p r o t e c t t h e i n t e r e s t s o f i t s c i t i z e n s . A p l a n n i n g and d e c i s i o n making o r g a n i z a t i o n w i l l n o t impose i t s w i l l upon a s t a t e when such d i r e c t i v e would b e c o n t r a r y t o t h e b e a t i n t e r e s t s o f t h e p e o p l e o f such a s t a t e . Such a d i r e c t i v e would l e a d t o m i s u n d e r s t a n d i n g , d i s a g r e e - men t , and u l t i m a t e l y l i t i g a t i o n f o r t h e s t a t e a d v e r s e l y a f f e c t e d by a n y s u c h d e c i s i o n making body. Such a n approach i s u n r e a l i s t i c and unworkable .

The r e p o r t t hen f o c u s e s on t h e s a l i n i t y c o n t r o l a s p e c t s o f t h e Co lo rado R i v e r a s an example of t h e i n e f f e c t i v e n e s s of t h e p r e s e n t management sys t em. The r e p o r t i m p l i e s t h a t on-going s a l i n i t y c o n t r o l p r o j e c t s s h o u l d b e d e l a y e d and t h e whole program r e - e v a l u a t e d . T h i s p roposed c o u r s e of a c t i o n would f u r t h e r i n c r e a s e t h e s a l i n i t y p rob lems o f t h e R i v e r System. While t h e r e p o r t s u g g e s t s a d e l a y e d c o u r s e of a c t i o n , we f e e l i t i s d e f i c i e n t inasmuch a s i t d o e s n o t recommend any a l t ' e r n a t i v e s t o t h e on-going s a l i n i t y c o n t r o l program i f such a r e a v a i l a b l e .

APPENDIX XI APPENDIX XI

Mr. Henry Eschwege, D i r e c t o r December 8 , 1978 Community and Economic Development Div is ion Page 3 United S t a t e s General Accounting O f f i c e

The r e p o r t p roper ly concludes t h a t t h e Colorado River Basin is f a c i n g probable water d e f i c i e n c e s sometime soon a f t e r t h e t u r n of t h e cen tury . There is no q u e s t i o n t h a t a l l seven Basin s t a t e s a g r e e w i t h t h i s e v a l u a t i o n . However, t h e r e p o r t is d e f i c i e n t i n s o f a r a s i t f a i l s t o provide any recommendations r e a l t i v e t o s o l v i n g t h e s e a n t i c i p a t e d water s h o r t a g e problems.

The r e p o r t i m p l i e s t h a t t h e r e is no mechanism s e t up t o d e a l w i t h t h e wate r s h o r t a g e s t h a t w i l l l i k e l y occur on t h e River i n t h e f u t u r e . The r e p o r t f a i l s t o recognize t h a t t h e Department of t h e I n t e r i o r has a l r e a d y been given t h e r e s p o n s i b i l i t y of f i n d i n g a d d i t i o n a l w a t e r s u p p l i e s f o r augmentation of t h e River System. Thus, we have supported t h e F e d e r a l Government i n i t s e f f o r t s t o o b t a i n a d d i t i o n a l wate r s u p p l i e s f o r t h e Basin.

We a p p r e c i a t e t h e oppor tun i ty t o comment on t h i s proposed d r a f t r e p o r t . We t r u s t our comments r e p o r t t h a t w i l l meet Basin.

w i l l b e u t i l i z e d i n o r d e r t o provide a comprehensive t h e needs of t h e c i t i z e n s w i t h i n t h e Colorado River

S i n c e r e l y ,

Duane R. Sudweeks Adminis t ra to r

cc: Noel J. Lance, General Accounting O f f i c e , Los Angeles, CA

APPENDIX XI1

S. E. REYNOLDS STATE ENGINEER

S T A T E O F N E W M E X I C O

STATE ENdlNEEM OFFICE # M A PX

December 1, 1978

BATAAN MEMORIAL BUILDING STATE CAPITOL

SANTA FE, NEW MEXICO 87503

Mr. Carl Bannerman United States General Accounting Office Community and Economic Development Div. Washington, D. C. 20548

Dear Mr. Bannerman:

Mr. Eschwege's October 23 letter to Governor Apodaca requests comments on the U. S. General Accounting Office draft report, "Colorado River Basin Water Problems: Proposals to Reduce Their Impact" by November 23. As you are aware, David Hale and I met with Larry Harrell and Dick Gannon of your office on November 15, and discussed the report in detail. We gave Larry and Dick our general reactions and some editorial suggestions. At the close of that meeting it was agreed that I would furnish you our summary comments by December 15.

The report is well-written in that it is literate and easy to read but it is subject to substantive criticism on several points.

Several passages of the report reflect a grave misunderstanding of the Colorado River Compact of 1922. This misunderstanding is most clearly reflected in the following quotation from page 13:

As discussed in chapter 1, the Upper and Lower Basins were allocated 7.5 maÂ (million acre-feet) each by the 1922 Compact and Mexico was allocated 1.5 maÂ by the 1944 Mexican Treaty, for a total allocation of 16.5 maf,

In fact, Articles III(a) and IlI(b) of the compact apportioned a total of 16 million acre-feet of consumptive use to the Upper Basin and to the Lower Basin from the Colorado River System. It is very important to the substance of the report to note that Article II(a) defines "Colorado River System" as "that portion of the Colorado River and its tributaries w.ithin the United States of America." (emphasis added). That is, consumptive use from the tributaries and the main stem in both basins is accountable against the apportionments of 111 (a) and 11.1 (b) . Article III (c) of the compact anticipates a treaty with Mexico and specifies how the treaty obligation, whatever it might be, will be met. As the report notes, the 1944 Treaty set the United States' obligation to deliver 1.5 maf annually to Mexico. ~ h u s , the total allocation from the Colorado River System i s 17.5 maf of consumptive use annually -- not 16.5

A P P E N D I X X I 1 A P P E N D I X X I 1

Mr. Carl Bannerman December 1, 1978 Page Two

maf as the report states.

The first complete sentence at page 15 of the report states:

The flows from these streams (Colorado River tributaries) are mainly in Arizona and were not included in the Colorado River water allocated to the Lower Basin states by the 1922 compact.

The definition of Article II(a) quoted above makes it abundantly dear that this statement is incorrect. From the correction of this statement there will flow a number of other corrections in the report which I will not detail here.

At page 14 the report states:

Although the Upper Basin states were apportioned 7.5 maf a year, the Bureau estimates that these states will only be able to consumptively use a maximum of 5.8 maf annually sometime after 2030 because this is the estimated amount remaining when the downstream and power storage commitments are made.

First I would point out that Articles III(e) and IV(b) of the Compact make it abundantly clear that the storage and release of water for electric power generation are subservient to the use and consumption of water for agriculture and domestic purposes, whether or not such use is within the apportionment to the Upper and Lower Basins. Secondly, I would point out that the rationale attributed to the Bureau estimates is incorrect. By way of documentation there are attached copies of Ival Goslin's July 19, 1978 letter to Secretary Andrus, Deputy Assistant Secretary Dan Beard's reply and Ival Goslin's November 6, 1978 letter to Assis- tant Secretary Beard.

The last complete sentence at page 14 of the report states:

The principal difference between the estimate of the Upper Basin States of 6.3 and the 5.8 ma.Â estimated by Bureau is the 0-75 maf that the Upper Basin is supplying to meet one-half of the Mexican water commitment. (emphasis added).

Under the current "Coordinated Long-Range Operating Criteria for Colorado River Reservoirs (pursuant to Public Law 90-537)" the objective is a minimum annuak deli- at Lee Ferry of 8.25 m x . However, this minimum is not set by the Mexican Treaty or the Secretary's interpretation of that treaty, but rather is based on projected short-term water requirements in the Upper Basin

APPENDIX X I 1 APPENDIX XI1

Mr. Carl Bannerman December 1, 1978 Page Three

and the need for power revenues for the development of Upper Basin resources. By way of documentation, there is attached a copy of Secretary Hickel's December 16, 1969 letter to Governor Cargo. (see page 3, particularly).

Further, in connection with the estimate of 5.8 million acre-feet of consumptive use in the Upper Basin attributed to the Bureau, attention is invited to the inconsistency of the factors listed on page 14 as being considered by the Bureau. It is obvious that if an average annual virgin flow of 15 million acre-feet at Lee Ferry and an annual release of 8.25 maf were assumed, the balance left for consumptive use in the Upper Basin would be 6.75 maf, not 5.8 maf.

At the bottom of page 3 the report states, "The Lower Basin has never exercised its right to increase the 7.5 maf allotment by 1 maÂ£. I am not aware of any basis for this statement. The Depart- ment of the Interior's report, "Colorado River System, Consumptive Uses and Losses Report -- 1971-75" reflects annual Lower Basin consumptive uses of 6.4 maf from the main stream and 4.2 maf from the tributaries including groundwater overdrafts. According to Table LC-1 main stream reservoir evaporation in the Lower Basin is estimated at 1.1 maÂ annually; thus, the report shows a total of 11.7 maÂ consumptive use annually from the Colorado River System in the Lower Basin.

I believe it is fair to imply, as the report does at page 25 and at several other points, that there is not agreement between the Upper Basin and the Lower Basin on how much water, in addition to 75 maÂ in each period of 10 consecutive years, the Upper Basin may have to deliver at Lee Ferry to meet its obligation under Article I I I ( c ) . As I indicated in the meeting on November 15, I believe the compact and hydrologic data resolve any question on this point, but I admit that I have talked to some who do not agree with my view. This question is treated in some detail, with documentation, beginning at page 6 of my June 12, 1975 statement to the Energy Research and Water Resources Subcommittee of the Senate Interior and Insular Affairs, copy of which I furnished Larry Harrell at the November 15 meeting. I invite careful reading of that discussion of the question. I am not aware of any similar comprehensive statement and documentation of the Lower Basin position.

At page 5 the report states, "In 1973 the treaty was amended to require the United States to deliver water of a specific salinity content." This statement is incorrect on two points. The treaty was not amended in 1973; Minute No. 242 was adopted under the treaty as a permanent and definitive solution to the international salinity problem. The Minute does not provide for a specific salinity content in the water delivered to Mexico, but rather sets a differential between the salinity of the water of the C.olorado River at Imperial and the salinity of the waters delivered to Mexico. This point is

APPENDIX XI1 APPENDIX XI1

Mr. Carl Bannerman December 1, 1978 Page Four

discussed correctly at page 50 of the report.

I believe the report is gratuitously negative about what has been accomplished in planning and carrying out the development and management of the Colorado River and its tributaries through the cooperation of the state and federal governments and through cooperation among the states themselves. Not the least of these accomplishments are the Colorado River Compact of 1922, the Upper Colorado River Basin Compact of 1948, and the Mexican Treaty of 1944. These compacts provided an essential foundation for the Boulder Canyon Project, the Colorado River Storage Project and the Colorado River Basin Project. It is not unreasonable to suggest that the outcome of World War I1 might have been different without the energy and water supply made available by the Boulder Canyon Project. The other projects have already made, or will make, tremendous contributions to the economy and welfare of the Colorado River Basin and the rest of the nation.

There is other evidence of the ability of the Colorado River Basin states to cooperate effectively that has a bearing on the need for a "river basin authority" such as recommended by the report. The Committee of Fourteen is a creature of the Basin states; each state has two representatives appointed by its Governor. While the Committee has no statutory authority, it played an important role in the consummation of the Mexican Treaty of 1944, in the negotiation of Minute 242 which resolved the international salinity problem that arose in 1961, and in the formula- tion and enactment of Public Law 93-320 which implemented the solution agreed upon by the Minute. Further evidence of the will- ingness and ability of the basin states to cooperate effectively is given by the states' creation, at the suggestion of the Environ- mental Protection Administration,of the Colorado River Basin Salinity Control Forum (Forum) in November of 1973. The Forum was able to formulate, and have adopted by each of the Basin states pursuant to Public Law 92-500, "Water Quality Standards for Salinity Including Numeric Criteria and Plan of Implementation for Salinity Control, Colorado River System." Considering the potentially conflicting interests of the Upper Basin and the Lower Basin and the states within those basins, the accomplishments of the Forum to date are notable.

At page iv, the report states that the Bureau of Reclamation has pointed out that recent studies indicate some of the salinity control projects authorized for construction or investigation by Public Law 93-320 will not reduce the salinity level as much as initially hoped and that there are no plans for control of salinity after 1990. The statement that the goals of the current salinity control efforts do not extend beyond 1990 is reiterated throughout the report; attention is invited particularly to passages at pages 36, 39, 47, and 55. I suggest that there is no basis for this statement. By enacting Title I1 of Public Law 93-320 (see

A P P E N D I X X I I A P P E N D I X X I 1

Mr. Carl Bannerman December 1, 1978 Page Five

particularly the document cited in Sec. 201(a)), the Congress has committed the Secretary of the Interior, the Administrator of the Environmental Protection Agency and the Secretary of Agriculture to a salinity control program in cooperation with the states extending far beyond 1990.

Even though it may be that projects and measures presently identi- fiable as feasible cannot be expected to maintain the current salinity standards under water-use development projected past 1990, it does not follow that the states and federal agencies are not seeking to develop projects and measures that can be expected to do that. The need for additional projects and measures is clearly recognized in Chapter VII of the Forum's "Proposed 1978 Revision: Water Quality Standards for Salinity Including Numeric Criteria and Plan of Implementation for Salinity Control." (copy of which I have furnished Larry Harrell). While the Colorado River Water Quality Improvement Program is a 10-year study program undertaken by the Bureau in 1972, there can be little question that the intent is to implement the program developed over whatever period is necessary to maintain the salinity standards.

In this connection, attention is invited to page 1-3 of the Bureau's report, "Colorado River Water Quality Improvement Program" which states:

The Colorado River Water Quality Program is a 10-year investigational program of the Bureau of Reclamation aimed at evaluating the means by which the salinity control goals can be most efficiently attained from the standpoint of cost effectiveness and time. (emphasis added).

The first sentence of the paragraph beginning at the bottom of page 54 states, "The option of bypassing Wellton-Mohawk flows and substituting them with other Colorado River water now appears to be feasible." As the rest of the discussion of the paragraph seems to acknowledge, the Congress has recognized that there are no other waters of the Colorado River available for delivery to Mexico. The Wellton-Mohawk return flows could be bypassed only if the Colorado River System couldbe augmented in a like amount with waters from outside that system.

The discussion at page 56 takes the view that the program authorized by Title I1 of Public Law 93-320 is proceeding without adequate consideration of cost-effectiveness. There is little basis for this view. Construction of the authorized Crystal Geyser salinity control unit has been deferred indefinitely because of its poor cost effectiveness and small impact; and the Bureau of Reclamation, with the support of the Colorado River Salinity Forum, has concluded

ill

A P P E N D I X XI1 APPENDIX X I 1

Mr. Carl Bannerman December 1, 1978 Page Six

that the authorized Las Veqas Wash unit should be reanalyzed and reformulated before its construction is undertaken.

The second sentence of the paragraph beginning at the bottom of page 56 states, "Thecurrentproject by project basis has led to water development that greatly increases salinity." It seems not appropriate to consider programs such as those authorized by the Boulder Canyon Project Act, the Colorado River Storage Project Act, and the Colorado River Basin Project Act as a "project-by-project basis." In any event, the Congress has recognized that any beneficial consumptive use of the waters of the Colorado River System will result in an increase in salinity downstream and for this reason directed the Secretary of the Interior (Section 201(a) of Public Law 93-320) to implement a salinity control policy that treats salinity as a basin-wide problem that needs to be solved to maintain Lower Basin water salinity at or below present levels while the Upper Basin continues to develop its compact apportioned waters.

Much of the discussion of the report, particularly that at pages 26 and 63, neglects the extent to which issues over the operation of reservoirs on the Colorado River system have been resolved. These issues, including questions of operations during times of shortage, have been resolved by the compacts and by Sections 301, 304, 501(c) and 602 of Public Law 90-537. The "relevant factors" to be considered by the Secretary pursuant to Section 602(a) remain the subject of some difference of opinion between representatives of the Upper Basin and the Lower Basin, but one can reasonably be optimistic about the timely resolution of these differences. As the report indicates, there remains a difference between'those representatives with respect to the amount of water that the Upper Basin ultimately may have to deliver for the Mexican Treaty pursuant to Article III(c1 of the 1922 Compact. These differences might be resolved by augmentation pursuant to the Congressional policy adopted by enactment of Title I1 of Public Law 90-537. On the other hand, negotiation or litigation may yet be necessary to resolve this issue; but the record going back to the negotiations for the 1922 Compact, supports the view that even this issue will be timely resolved.

Some comment on the list of "unresolved issues" at page 63 may be helpful.

--How the term "surplus water" in the 1922 Compact is defined.

The term "surplus water" is not used in the 1922 Compact. The Compact does provide (Article III(c1) that water to satisfy any right that Mexico may have " . .. shall be supplied first from the waters which are surplus over and above the aggregate of the


Mr. Carl Bannerman December 1, 1978 Page Seven

quantities specified in paragraphs (a) and (b)." This provision seems clear enough.

--Should higher priority to water be given to water development or salinity control projects?

The Congress resolved this issue by enacting Section 201(a) of Public Law 93-320, directing the implementation of the salinity control policy alluded to in that section; i.e., the maintenance of salinity concentrations at the 1972 levels while the states develop and use their compact apportionments.

--How much water must be maintained for instream flow uses?

This issue is in large measure resolved by the delivery obligations of the compacts and the treaty, existing laws of the states, and in some cases,individual project authorizations. In some situa- tions, geography itself and public land ownership patterns control the question.

The report recommends a "central authority," or "river basin authority," to resolve the problems and issues of the Colorado River Basin. The report is not specific about the jurisdiction to be given such an entity, but recognizes the need for authority to achieve the intended goal by the following sentence at page 70:

The organization must have enough authority to assure that the interests of all parties are equally protected without favoring the wishes of one over the others.

The benign authority to protect the interests of all parties necessarily implies the authority to adversely affect the interests of some to enhance the interests of the region or the nation as the authority may determine. The creation of such an authority obviously poses very difficult political problems. Given the issues that the authors apparently feel that the "authority" should resolve, it appears that amendment or repeal of the compacts would be necessary. Such amendment or repeal would require the una- nimous action of the seven states and the consent of the Congress, or some assertion of federal supremacy that would almost cer- tainly raise serious constitutional questions. It is my view that the creation and contemplated role of the recommended authority are politically and functionally impractical. The mechanism of Article VI of the Colorado River Compact of 1922 is available, and I believe more nearly viable, than a Colorado River Basin Authority. The thrust of the draft report is mis- directed; I recommend that it not be submitted for publication.

APPENDIX XI1

Mr. Carl Bannerman December 1, 1978 Page Eight

A P P E N D I X X I I

The opportunity to comment on your draft report is qreatly appreciated.

SER: pt

Eclosures

State ~ n g i n e V

A P P E N D I X XI11 APPENDIX X I 1 1

ED HERSCHLER GOVERNOR

BARRETT BUILDING CHEYENNE. WYOMING 82002 November 30, 1978

Noel J. Lance Advisory Auditor United States General Accounting Of f ice Suite 1010, World Trade Center 850 South Figueroa Street Los Angeles, California 90071

Dear Mr. Lance:

A s a resul t o f our meeting with you and Mr. Carl Bannerman on November 15 , 1978, concerning the dra f t o f the proposed report, "COLORADO RIVER BASIN WATER PROBLEMS: Proposals t o Reduce Their Impact", we o f f e r the following comments concerning t h i s report.

First , here are the comments concern-ing the report from A1 Minier o f the Governor's State Planning Coordinator's Of f ice:

I find the following spec i f ic problems with the GAO report we discussed Wednesday.

1. Reserved Rights: The report authors r e f l e c t no knowledge o f a recent U . S . Supreme Court decision, United States v . New Mexico (July 3, 1 9 7 8 ) , which directly bears on many o f their assertions and intimations. Quoting from page s i x o f the s l i p opinion: "Where water i s necessary t o f u l f i l l the very purposes for which a federal reserva- t ion was created, i t i s reasonable to conclude even i n the face o f Congress' express deference to s tate water law i n other areas, that the United States intended t o reserve the necessary water. Where water i s only valuable for a secondary use o f the reservation, however, there arises a contrary inference that Congress intended, consistent with i t s other views, that the United States would acquire water i n the same manner as any public or private appropriator ."

This direct ly conf l ic t s wi,th assertions about the potential federal uses for energy development (page 2 4 ) , intimations about the s i gn i f i - cance o f the virgin western waters (page 24), and concerns for Indian reserved r ights (page 19 and following) .

Further, the GAO report does not seem t o appreciate the present deference o f federal l a w t o s ta te water law, evidenced not only i n United States v. New Mexico, b u t i n a companion case, California v. United States , as well As the general corpus o f western water l a w . While

APPENDIX X I I I A P P E N D I X X I I1

Noel J. Lance Page 2 November 30 , 1978

it i s not accurate t o say that the law o f the r iver i s s t r i c t l y a s tate a f f a i r , it is clear that the national in teres t has been defined i n terms o f a composite o f s ta te in teres t s , rather than as an exclusive and independent assertion o f national authority (see page 6 8 ) .

2 . Recommendations: I believe that the recommendation o f yet another federalistate task force i s bound t o be f ru i t l e s s , un- l e s s further direction is given.

First, the thrust o f the organization i s impl ic i t ly t o address questions o f authority t o make management decisions i n the Basin (see page 7 0 ) . This i s bound t o lead t o a dead end, since the essence o f the Basin d i f f i c u l t y i s conflicting authorities and responsibi l i t ies . The at t i tudes o f the s tates i n t h i s regard are not whimsical; the Wyoming Constitution, as approved by the United States upon admission to the Union, provides for the allocation o f a l l the s ta te ' s waters. Contrary assertion o f authority can only stimulate disagreement.

We would prefer t o focus on questions regarding physical management problems, as oppossed t o the authority t o manage. Recent Wyoming experience with the conf l ic t between the Grayrocks Dam and Reservoir project and endangered whooping cranes i n the Platte River indicate the spec i f ic problems may be resolved without raising the issue o f soverign control. The solution i n that case turns on spec i f ic water use connnitments by private parties involved, with the blessings o f the s tates o f Wyoming and Nebraska.

Second, the proposed organization i s l i k e l y t o be composed of the same o f f i c i a l s who are presently responsible for water policy i n the Basin. In t h i s event, the proposed task force w i l l resul t i n l i t t l e more than a plebiscite on the wisdom o f the proposals made thus far; and, given the information available when those decisions were made, i t i s d i f f i c u l t t o say that the decisions were unwise. But i f new direc- tions are desired, such a charge must be expl ic i t i n the reconsvendations t o the Congress.

Third, i t seems to me that there may be a wide variety o f sources for fresh insight i n t o the Basin's problems, particularly i f the focus o f renewed interest i s s i t e -spec i f ic problems rather than the macrocosmic over-view o f exis t ing ins t i tu t ions . One alternative i s t o provide support for new or outside technical assistance t o catalog spec i f i c management problems, perhaps through the Water Resources Council. Another i s t o in- vestigate s tate-speci f ic experiences i n managing the complex inst i tut ional framework surrounding water development; one example i s the twelve-agency Governor's Interdepartmental Water Conference o f Wyoming. We believe that the sources o f fresh, practical insight are potentially boundless, but the alternatives for new, centralized management authority i n the Basin can only lead t o a dead end.

3. Shortcomings o f the Traditional System: The overall thrust o f the report i s that the present ins t i tu t ions that have authority t o manage


Noel J. Lance Page 3 November 30, 1978

the Basin do not have the answers to chronic shortages that w i l l begin t o appear a t the turn o f the century. I believe that t h i s i s incorrect. Western water law has always been designed t o manage Water scarci ty . The answer t o shortages wil l turn on existing agreements under the law o f the river regarding who bears the burden o f such shortages. We do not see how the implied alternative o f the GAO report, a more centralized allocation o f these shortages, w i l l improve upon the exis t ing arrangements.

In short, the implied next step o f a centralized authority has clearly not been adequately just i f ied by the report. I believe that there are also pol i t ical and legal constraints upon such a course o f act ion, and that these constraints should be exp l ic i t l y surfaced i n the report. As I have said above, the price o f pursuing t h i s l i n e o f thought, i .e., the central authority, w i l l be more wasted time and frustrat ion. One way i n which we do agree with GAO i s that we cannot af ford that delay.

We wish t o o f f e r the following general comments:

Generally, the report provides a broad overview o f the circum- stances and conditions surrounding u t i l i za t ion o f the water i n the Colorado River as development o f the reqion has evolved over the years. There are many ac t i v i t i e s continually addressing the problems and opera- t ion o f the river w i t h the objective o f improving the coordination o f a l l related functions to provide the most bene f i t for the national in- teres t .

Basically, it i s our position that with the enactment o f the Colorado River Compact i n 1922, and the Upper Colorado River Basin Compact i n 1948, the framework for each o f the basins states rights was defined and i t i s the responsibi l i ty o f each s tate to operate within the l imi t s thus estab- l ished. From t h i s concept, emanates much debate over the primacy o f Federal or State law. We believe that the general tenor o f t h i s report favors the Federal s ta tus , however, recent l i t iga t ion tends toward the deference o f Federal law t o State law. While it i s not accurate t o s a y that the law o f the r iver i s s t r i c t l y a State a f f a i r , i t i s clear that the national in teres t has been defined i n terms o f a composite o f State i n t e re s t s , rather than as an exclusive and independent assertion o f national authority . Considering the s tate of development i n the basin and the methods employed t o reach that s ta te , i t must be admitted that creditable resu l t s have been and w i l l continue t o be achieved.

We also wish to o f f e r the following spec i f ic comments concerning the report:

Page i. - During recent years, the sa l in i ty concentration trend has been decreasing and f r o m current projections, i t does not appear that sa l in i ty w i l l be much d i f f e ren t around the Year 2000 than it i s now, provided proposed sa l in i ty control projects are implemented. I t i s true that each en t i ty has i t s own in teres t s , however, there i s not a s t r i c t l y parochial at t i tude as there has been and continue to be a number o f basin cooperative studies i n long range planning e f f o r t s .

APPENDIX XI I I APPENDIX XI11

Noel 3 . Lance Page 4 November 30, 1978

Page ii

Page i v

Page 1

Page 6 , Line 12

Page 8 Line 2

Second Paragraph Line 9

Page 9

Page 12

Salinity has been acknowledged as a problem i n Ole Colorado River for many years. Negotiations with Mexico and resul t ing national cornmi t tments t o Mexico have had a major impact on promoting sal- i n i t y control projects. Due t o these actions, it was necessary for the States t o support the projects i n order that water developoient could continue on an orderly basis . Current data indicate a decreasing trend i n sa l in i ty concentration, probably due to the dampening e f f e c t o f storage and also periods o f favorable runof f .

Due t o national responsibilit ies resulting from international negotiations with Mexico and also since i n excess o f 50% o f the sa l in i ty sources are from natural causes, the application o f cost-benefi t cri teria i s not considered pertinent. A1 though not speci f ical ly ident i f ied , many in teres t s i n the basin are giving consideration to programs for controlling sa l in i ty a f t e r 1990.

T o the f i r s t sentence could be added . . . producing much wealth for the nation". Power generation and flood control were among the purposes for constructing the original f ac i l i t i e s .

Add the word "projected" a f t e r the word "Recently ."

- Delete the word "shortages" a f t e r the word "shortage".

- The issues l i s ted have been or are currently being addressed. By compact, the Upper Basin i s obligated to deliver an average o f 7.5 million acre-feet o f water yearly t o the Lower Basin and i t i s assumed this w i l l continue t o be done even during periods o f low flow as long as there i s su f f i c i en t water i n storage. There i s question o f who w i l l bear the burden of providing water t o resolve inst i tut ional con f l i c t s .

- The Bureau 's projections have been general1 y developed i n cooperation with the States and are probably as sound as those o f any other ent i ty , as the Bureau's ac t iv i ty has been management and compilation o f data relat ive t o operation o f the r iver.

- The Bureau uses a range of alternative flow estimates i n i t s studies including some o f l e s s than 15 m a f .


Noel J. Lance Page 5 November 30 , 1978

Page 13

Page 16

Page 18

Page 19 thru

Page 24

Page 25

Page 32

Page 34 and 35

Page 37

Page 38 Line 15

Schedule for the Central Arizona Project (CAP) t o begin operations i s 1985 instead o f 1989.

Ini t iat ion o f the CAP a f t e r 1985 should not, a t least i n the early years, basically a f f e c t the abi l i ty o f the River t o yield su f f i c i en t water t o meet demands. Withdrawals by Arizona are intended to be o f f s e t b y decreases i n diversions to California.

Last sentence - We do not believe that the question o f whether or not Indian and Federal reserved rights are dependent on actual diversion and use has been yet thoroughly set t led.

Resolution o f Indian and Federal reserved water rights claims needs t o be accomplished but it may not be rea l i s t ic t o anticipate that these claims w i l l be settled i n the near future.

A l l Basin States have established procedures for administration o f water during sub-normal or periods o f water shortage. Operation procedures are continually under evaluation and are believed t o be functional to provide f l ex ib i l i t y during periods o f drou t h stresses.

The USBR has consistently conducted studies on the basis o f conservative estimates of water supply with the deficiency being charged to the Upper Basin States entitlement. On th i s basis,agreement has not been reached.

Studies o f the nature recommended dre continually underway. Development o f a master plan on which agreement could be reached by a l l en t i t i e s concerned would be a cumbersome task which may prove t o be un- achievable.

The defined requirement i s t o l i m i t the sa l in i ty o f waters going to Mexico t o 1972 leve ls with accepted variations and i s not t o decrease sa l in i ty o f waters reaching Mexico.

Af ter the phrase, "sa l t i s added", add the words "or concentrated", then i n Line 16, delete the word "to" and insert the word "in" . Last paragraph - Considering the present and projected s ta te of use andpast rate o f increase i n sa l in i ty concentration i n relation t o the

APPENDIX XI11 A P P E N D I X X I 1 1

"Joel J . Lance Page 6 November 30, 1978

20 years to the turn o f the century, it does not appear realist ic that salinity would increase to "about 1214 mg/1" by the turn o f the century.

Paqe 40 - and 41

Paqe 47 - Page 48 -

Page 55 -

Page 57 -

Page 59 -

Page 59 Last l ine

Page 60 -

Page 6 2 -

Inasmuch as the States were granted entitlement to use o f water o f the Colorado River b y compact, they should be allowed to develop for such use and not be restricted b y non-implementation o f salini ty projects which are considered a benefit t o the national interest and hence, a national responsibility . What studies have been made by (EDF) ?

There are other measures such as the Section 208 plans which are i n the process o f development which no doubt will extend beyond 1990.

The Forum's salinity control plan is structured for continuation o f planning and studies a f ter 1990 as an on-going program,

Further dealy i n implementing the salini ty control projects can only result i n further escalation o f costs. The present program does constitute the most e f fec t ive and economical projects. Other less costly alternatives have not been revealed from many evalua- tions that have been made.

Water planning and development are a composite part o f overall management o f the basins water resources. As with many western streams, without storage, there would be nothing to manage as flows rapidly diminish a f t e r spring and early summer runof f . Basically, water use must evolve around irrigation, municipal and indus- tr ial uses as the functions producing the necessities for existence i n the basinh economy.

Delete the word "Aqricultural" and insert the word "water".

Relations and cooperation among the various ent i t ies are generally favorable and constitute a good demon- stration o f the democratic process. I t i s doubted i f a central authority could function e f f ec t i ve ly .

I t i s suggested that the words "or vice versa" be added to the las t sentence, 1st f u l l paragraph. Also, i n the las t paragraph, 4th l ine , the word "principal" should be deleted since we do not feel the securing o f

APPENDIX X I T I A P P E N D I X X I 11

Noel J . Lance Page 7 November 30, 1978

Page 6 3 -

Page 66 - and 67

Page 6 8 -

Page 70 -

Federal appropriations for project studies and development i s the "principal" ac t iv i ty o f the Upper Colorado River Coixnission.

Last l i ne - We suggest you add a f t e r the word 'uses" , the phrase "and where i s it going t o come from?"

The Total Water Management Study was opposed as being not legally authorized or funded. Also, i t was considered that the scope o f the study was not adequately defined.

The s tates do not contend that the r iver shouldn ' t be operated and managed for the benef i t o f the Nation or even the basin as a whole. We feel that t h i s en- t i r e section on "The Total Water Management Study" should be rewritten to be l e s s deroqatory to the s tates posi t ion.

The s tates have responsibi l i t ies t o the i r residents which can best be f u l f i l l e d through local management and are o f the be l i e f that r ights granted through past negotiation should be upheld. We believe t h i s page should be rewritten t o r e f l e c t t h i s and the other concerns we voiced t o y o u .

A central authority acceptable to the Federal Government and States for the purpose o f providing comprehensive manaqemnt o f the basin's resources, does not appear feasible, due to the large number o f in teres t s involved i n resolution o f any issue. As s tated, such an oxqani- zation would be an extremely sensi t ive issue, both poli- t i ca l l y and economically and a task force t o define i t s structure would have a very d i f f i c u l t assignment t o resolve.

The report does serve to point up the many problems associated with the r iver and that i t i s unique i n i t s own r igh t . In the final analysis, considering the extent o f quality development and the great amunt o f wealth produced for the national bene f i t , i t s u t i l i za t ion has made possible, it may well prove that the management methods and procedures which have been acceptably employed i n the past could continue t o serve the purpose best .

Sincerely , A

GEORGE L . CHRISTOPULOS State Engineer

GLC/llw cc: Governor Herschler

Al Minier Henry Eschwage

APPENDIX X I V APPENDIX X I V

KEL FOX. CU.

JOHN L . LEIBER. V CU.

WE8LEY E. STEINER DXRCUTIVE OIKCCTOR

AND Â¥TAT WATER CNOlNEIR

VICKIE MOONEY S1.CRETARY

BRUCE C. BABBITT. G O V K ~ N O B

2 NORTH CENTRAL AVENUE. SUITE 8 0 0

~ l p n i x , $ritona 85004 TELEPHONE IflOZl 2M-7661

December 11, 1978

MEMBER* PETER F. BIANCO MAHYBETH CARLILE GLEN G. CURTIS W. N. JACK SHAWVER J. C. WETZLER

CXOFPICIO MEMBERS ' ANDREW L. BETTWY

MARSHALL HUMPHREY

Mr. Henry Eschwege Director Community and Economic

Development Division U. S. General Accounting Office Washington, D. C. 20548

Dear Mr. Eschwege:

Cove rnor Babbitt has asked that I respond to your le t ter of October 2 3 transmitting a copy of the proposed draft report to the Congress entitled, 'Colorado River Basin Water Problems: Proposals to Reduce Their Impact. "

The opportunity to review the draft and to discuss i t on November 29 with Messrs . Richard Gannon and Noel Lance of your Los Angeles staff is greatly appreciated.

The report attempts to analyze and offer recommendations on a number of problems involving the Colorado River. Unfortunately, i t i s founded on inaccurate facts, misunderstandings and misinterpretations of law, lacks objectivity and overstates and over-dramatizes the problems and reaches conclusions that a r e naive and without merit .

Having had an opportunity to discuss the report in detail with repre senta- tives of your staff, I will confine my written remarks to major a r e a s of concern.

The report cites, beginning on page 60, "the lack of a single authority t o plan for water resource development and address problems on an in te r - related, basinwide basis" and propose s the establishment of a task force by the Congress to formulate the makeup of such an authority. The report on page 63 contends that "current management organizations in the basin do not provide an adequate mechanism for solving interstate disputes," and on page 64 that existing management groups a r e "delaying actions to resolve the current problems and conflicts.

A P P E N D I X X I V

The r e p o r t f a i l s t o recognize the t r emendous p r o g r e s s tha t has been made dur ing the pas t 10 y e a r s in developing and mainta in ing coopera t ion among the s even s t a t e s and between the s t a t e s and the affected f e d e r a l agencies . Included among o u r s u c c e s s e s a r e : (1) negotiat ion and author iza t ion of the Co lo rado R ive r Bas in P r o j e c t A c t i n 1968, ( 2 ) resolu t ion of the Mexican sa l in i ty p rob lem; (3) au thor iza t ion of a pcogram to con t ro l s a l t input throughout the basin; (4) the deveLopment and adoption of common sa l in i ty s t anda rds f o r the Colorado R ive r ; ( 5 ) coordination of r i v e r managemen t opera t ions in the Lower Babin; (6) e s t ab l i shmen t of a m e a s u r i n g s y s t e m t o evalua te unmeasu red r e tu rn f lows to t h ~ Lower Colorado Rive r: ( 7 ) negotiat ion of a s t ipula ted a g r e e m e n t cove r ing p r e s e n t per fec ted r ights along the Lower R ive r : and ( 8 ) the development of p rocedures f o r dealing with i l lega l dive rte r s f r o m the Lower Colorado R ive r and (9 ) fo r obtaining a w a t e r supply f o r r ec rea t iona l and urban lands tha t do not have per fec ted r ights o r a con t r ac t wi th the S e c r e t a r y .

The organiza t ional m e c h a n i s m s n e c e s s a r y t o r each c o m p r o m i s e where cornprorr.ise can be achieved do in fac t e x i s t and t h e i r e f f o r t s in m o s t i n s t ances have been successfu l . In advocating the e s t ab l i shmen t of a basinwide managemen t au thor i ty the r e p o r t fa i l s t o recognize the cons t r a in t s of c u r r e n t compac t s and cou r t d e c r e e s . Water suppl ies of the Co lo rado R i v e r have been a l loca ted a m o n g s t the s t a t e s and cannot be rea l loca ted by a new bas in au tho r i t y without the unlikely app rova l of a l l s even s t a t e s . The m o s t impor tant function of a n author i ty , the al location and uti l izat ion of the w a t e r r e s o u r c e , has been p reempted by compact and d e c r e e , F o r example , n e i t h e r the S e c r e t a r y , a s proposed on page 35, n o r a bas in author i ty can e s t a b l i s h the r e spec t ive s h a r e s of the Mexican t r e a t y burden t o be borne by the two bas ins . T o believe othe rw i se , to propose o the rwi se , is the height of naivete.

While I f e e l t ha t the s t a t e s and the f e d e r a l agenc ie s ac t ing through the organiza t ional m e c h a n i s m s tha t they have jointly e s t ab l i shed have dea l t effect ively wi th the p rob lems that needed at tention dur ing the p a s t 10 y e a r s ( i . e . , the Commi t t ee of Four t een , the Co lo rado R ive r Bas in Salini ty Con t ro l F o r u m , the Lower Colo rado Rive r Management Coordina t ing Commi t t ee , and s e v e r a l a d hoc groups f o r m e d to cons ide r s u c h p r o b l e m s a s ope ra t ing c r i te r i a , e t c . ), these organiza t ions could be expanded to f o r m a n u m b r e l l a g roup tha t d e a l s wi th the total s p e c t r u m of p r o b l e m s af fec t ing a l l s even s t a t e s . The benefi ts of such a n expans ion would a p p e a r p r i m a r i l y c o s m e t i c , in that the s a m e individuals would be involved a s c u r r e n t l y r e p r e s e n t the s t a t e s . While the benefi ts m a y be m a r g i n a l , the d isadvantages of fo rming s u c h a n u m b r e l l a organiza t ion would a l s o a p p e a r min ima l .

The r e p o r t i s unfa i r ly negative in i t s t r e a t m e n t of the s a l i n i t y con t ro l p r o g r a m . I t f a i l s t o point out t ha t the t r e a t m e n t of s a l t con t ro l p ro j ec t s is the s a m e a s C o n g r e s s e s t ab l i shed f o r o t h e r e l e m e n t s of w a t e r qual i ty in the

APPENDIX XIV A P P E N D I X X I V

Federa l Water Pollution Control Act Amendments of 1972. Benefits do not have to exceed costs. Project priority i s established on the basis of cost effectiveness and the federal share of the costs of construction, operation, maintenance and replacement is similarly set a t 75 percent.

The report recommends (page 57) that "Congress delay federal funding of salinity control projects and require the Bureau to develop an alte rnative plan in coope ration with the basin states which would address the salinity problems in a comprehensive manner and result in an effective and efficient basinwide program. " No factual support for the recommendation i s offered o r alternatives suggested. The recommendation i s ill-founded, dangerous, and harmful and should be modified to call upon the Congress and the Adminis- tration to expedite rather than delay funding for the salinity control projects.

The report concludes that ' ' the option of bypassing Wellton-Mohawk return flows and substituting them with other Colorado River water now appears t o be feasible." That i s not the case. The United States agreed to protect the seven Colorado River basin states against a l l costs of the settle- ment with Mexico, including any loss of water, in exchange for their support of the agreement. The states cannot tole rate the bypassing of any quantity of water t o the Gulf without concomitant credit against the Mexican t reaty burden o r replacement by the United States f rom sources of supply not otherwise available to the states. The quantity of water in question i s a t least 155,000 acre-feet,not the 88,000 cited in the report. The cost comparison drawn in the report i s a most improbable one. Bureau of Reclamation studies of alternative sources of supply t o replace the brine loss f rom the desalter, a maximum of 42, 000 ac r e -feet per y e a r , indicate costs consistently in excess of $300 per acre-foot. The availability of $3.00 an acre-foot replacement water in Yuma County i s a pipe dream.

The report i s overly pessimistic concerning the future water supply of the Colorado River and potential water shortages. It grossly over est imates the rate a t which the Upper Basin will increase i ts use of Colorado River water. Actual depletions in the Upper Basin have consistently lagged fede rat and state projections and a r e currently approximately 700,000 acre-feet per year lower than the Bureau of Reclamation in 1968 projected would occur by this point in time. The report should be revised to recognize this fact.

The report concludes, on page 33, that specific ope rating c r i te r ia should be developed immediately and, on page 35, that the Secretary should amend the operating cr i ter ia in several specifics. There has been no need to date for more definitive cr i ter ia then were promulgated in 1970 by the Secretary pursuant to the requirements of the Colorado River Basin Project Act and it does not appear that there will be a need for them in the foreseeable future. More rigid operating rules should not be established until they a r e

A P P E N D I X X I V

essen t i a l s o a s to retain maximum flexibility and to permit the la tes t possible judgements on the relative importance of a l l f ac to r s affecting ope rating decisions including water needs and values, power needs and values, wa te r quality, e tc .

I t i s my belief that the repor t should be withdrawn o r significantly modified. 1 apprecia te the opportunity to re view the draf t and would be pleased to d i scuss the m a t t e r fur ther with you should you des i re .

Since rely,

kesley&. Ste iner Execu e Director

cc: Governor Babbitt Richard J. Cannon

APPENDIX XV

STATC OF CALIPORNLA-THE BtSOUBCES AGENCY EDMUND G BROWN J R , Gowraar -- ---- -*---- - --= -. - -- COLORADO RIVER BOARD OF CALIFORNIA 107 SOUTH MOADWAY, ROOM 8103 10s ANQflES, CUJFOINIA 90012 (313) *2(MUO

December k , 1973

Mr. Henry Eschwege, Director Community and Economic Development Division United S ta te s General Accounting Office Washington, D. C. 20548

Dear Mr. Eschwege:

Thank you f o r t h e copy of your proposed d r a f t r epor t t o Cougreso e n t i t l e d "Colorado River Basin Water Prcbler-s: Proposals t o Reduce Their Impact," which was transmitted t c Governor Brown by your October 23, 1978, l e t t e r . The repor t has been re fe r red t o me f o r reply. I a l s o met with and discussed the d r a f t repor t with Messrs. Richard Cannon and Noel Lance from the GAO Los Angeles Office on November 20.

Your inves t iga to r s were able t o determine and analyze severa l of the major current and fu tu re Colorado River problems and issues . Unfortunately, t h e d r a f t r epor t reveals a lack of understanding of SOTOO of these problems. To a l a rge degree, it is a s u p e r f i c i a l ana lys i s of complex i s sues which has l e d t o erroneous conclusions and s impl i s t i c and poorly conceived recommendations. If t h e r epor t i s re leased e s s e n t i a l l y a s draf ted , it would e i t h e r have a harmful impact on resolving Colorado River problems o r a t bes t would t-end t o be ignored by people having responsibi1it.y t o seek so lu t ions t o Colorado River water problems.

My major concerns with the conclusions and recommendatZions i n the d r a f t repor t a re b r i e f l y summarized ' a s follows and are covered i n more d e t a i l i n t h e attachment t o t h i s l e t t e r .

1. The i s sue of fu tu re water shortages i n t h e bas in is much more complex than is presented, and the r epor t ' s overly pess imis t ic view ind ica t ing impending water shortages is not subs tant , ia ted by a ca re fu l ana lys i s of a l l re levant f ac to r s .

2. The repor t recommends t h a t the undefined a reas i n the current operating c r i t e r i a f o r Cc1cr~iS.c~ River r e se rvo i r s be defines numerically a t t h i s time. This would not be a des i r ab le a c t i o n f o r two basic reasons: ( a ) there is no pending water shor tages nc or f o r many years i n t h e fu tu re t h a t would require add i t iona l numerical values and (b ) the f l e x i b i l i t y i n the current c r i t e r i a and t h e l i s t i n g of f a c t o r s t o be considered w i l l allow fu tu re decis ions t o be reached a t a l a t e r da te t h a t w i l l b e t t e r r e f l e c t t h condit ions e x i s t i n g a t t h e time decisions need t o be made.

APPENDIX XV A P P E N D I X XV

Mr. Henry Escnwege December 4, 1978 Page two

3. Notwithstanding t h e r e p o r t ' s conclusions, t h e United S t a t e s Bureau of Reclamation's (USER) current s a l i n i t y con t ro l p ro jec t s , while making a major contr ibut ion the re to , a r e not t h e only means f o r meeting s a l i n i t y standards. They a r e a pa r t of a combined

rogram wi th other measures now developed and which w i l l continue t o Ee develo ed by fede ra l agencies and the bas in s t a t e s . S tudies now underway by the USER, Department of Agriculture, Universi ty researchers , t h e Bureau of Land Management, and others have i d e n t i f i e d seve ra l Prospects f o r reducing s a l t loads not now i n the contro l program, and a l s o show t h e need f o r adjustments i n t h e bas ic sa l t - f lew re la t ion- sh ips i n the basin. The s t a t e s ' and t h e Environmental Protec t ion Agency's program f o r reviewing s a l i n i t y standards and con t ro l measures every th ree years w i l l continue t o provide syf f i c i e n t l ead time f o r t h e evaluat ion of t r ends i n s a l i n i t y and the implementation of add i t iona l contro l measures as needed i n a cos t -ef fec t ive manner.

4. The repor t ' s r e c m e n d a t i o n t o delay the funding of t h e USBR's s a l i n i t y contro l p ro jec t s would be a major mistake, e s p e c i a l l y s ince t h e USER i s f i n a l l y beginning t o show some progress on these p ro jec t s . Any delays would only r e s u l t i n increases i n c o s t s of the p ro jec t s and increases i n the r i v e r ' s s a l i n i t y .

5. The conclusions t h a t s a l i n i t y contro l can bes t be accomplished through b e t t e r basinwide water management is not subs tant ia ted . The repor t contains no a l t e r n a t i v e s f o r t h e cu r ren t s a l i n i t y c ont ro l program.

6. The proposal f o r an overa l l management agency f o r t h e bas in i s based on erroneous statements, such a s tha t t h e r e is a l a c k of cooperation among t h e s t a t e s and t h a t t h e r e is a fragmented approach t o t h e bas in ' s problems and issues . For many years, t h e bas in s t a t e s and concerned fede ra l agencies have been working co r a t i v e l y one and i n a coordinated manner on t h e many i s s u e s now before t e basin. The imposition of a new agency and bureaucracy would be harmful r a t h e r than helpful i n solving t h e bas in ' s problems. Further, t h i s agency would not have t h e a u t h o r i t y t o resolve t h e i s s u e s l i s t e d i n t h e report, on which d i f f e r i n g pos i t ions a r e held by t h e bas in s t a t e s and fede ra l agencies. Any attempt t o do s o would l ead t o major l i t i g a - t ion .

I recommend t h a t t h e d e t a i l e d comments a t tached hereto, toge the r wi th comments from other basin s t a t e s and f e d e r a l agencies, serve a s guidel ines f o r a revamping of t h e d r a f t r epor t t o the end t h a t it can serve a s a use fu l document t o Congress, t h e Administration, and t h e basiri s t a t e s .

S incere ly yours,

Attachment cc: Richard J. Gannon

Myron B. Holburt Chief Engineer

APPENDIX XV APPENDIX K V

DETAILED COMMENTS Oh GAO DRAFT REPORT "COLORADO RIVER BASIN WATER PROBLEMS: PROPOSALS TO REDUCE

THEIR IMPACT"

In the fol lowing d e t a i l e d comments, I have not attu!npted t o co r rec t many of t h e e r r o r s i n the r e p o r t , but have e s s e n t i a l l y l imi t ed t h e comments t o some of t h e major conclusions and recommendations and have r e f e r r e d t o o ther items i n t h e r epor t when necessary t o r e l a t e them t o these conclusions and recommendations. No comments are given on the d i g e s t , Chapter I ( ~ n t r o d u c t i o n ) , and t h e Appendix t o t h e repor t . The comments a r e l i s t e d by sub jec t a reas wi th in each chapter and a r e prefaced by a quota t ion or paraphrase of the pe r t inen t GAO conclusion c r recommendati on followed by my comments on t h a t item.

CHAPTER 2

Water Shortages i n Colorado River Basin

GAO conclusion (pg 3 2 ) : The United S t a t e s Bureau of Reclamation USBR) i s using "an overly opt imis t ic es t imate of the bas in ' s water

~upp1y"which could r e s u l t i n inadequate prepara t ion f o r f u t u r e water shortages.

I n developing a concept, t h a t the Colorado River Basin f a c e s a c r i s i s i n t h e near f u t u r e , t he repor t uses USBR s t u d i e s t o i d e n t i f y the p o s s i b i l i t i e s of f u t u r e water shortages. It then makes seve ra l re ferences t o o thers who bel ieve t h a t the shor tages w i l l occur sooner and be more severe than have been projec ted by the USBR (pgs 6 , 13 , 15 , and 1 6 ) and ends up by present ing an overly pess imis t ic view of p o t e n t i a l water shor tages wi th in t h e Colorado River Basin.

Future water shortages w i l l depend on many f a c t o r s , the major ones being water supply, water use and the amount and u t i l i z a t i o n cf water i n t h e major r e se rvo i r s . Wit-h r e spec t t o the major i tems, the s i t u a t i o n is essentia'L'Ly a s follows:

The bas in is cu r ren t ly i n a wat,er su rp lus s i t u a t i o n which should l a s t u n t i l a t l e a s t t he l a t e 1980's when the Central Arizona Projec t is expected t o commence f u l l d e l i v e r i e s . This g ives a high p r o b a b i l i t y t h a t usable water i n s torage i n t h e major r e s e r v o i r s w i l l be approximately 55 mi l l ion acre- fee t (maf ) a t t h a t time. Increase i n Upper Basin water use has been much slower than predic ted by t h e USBR and o thers i n recent years. Based on a recent ana lys i s of r e spec t ive Upper Basin p ro jec t s , we es t imate t h a t t he 1990 Upper

! a s i n use w i l l be approximately L.1 msf r a t h e r than t h e 5 .3 rnaf shown on page 1 5 of the r epor t . Using a lower average water supply (14 maf/yr) at. Lee Ferry r a t h e r ~ i u n the 15 maf/yr a t t r i b u t e d t o t h e USBR (pg 1 2 ) , the r e se rvo i r s can be gradual ly drawn down f o r many years a f t e r t he year 2000 without, shortages.

A P P E N D I X XV

The conclusions and statements i n t h e r e p o r t t h a t i r id ica te e a r l y water sho r t ages is not j u s t i f i e d by t h e a v a i l a b l e information. The r e p o r t should be r e w r i t t e n t o cons ider a l l of t h e f a c t o r s t h a t bear on water sho r t ages and present a more balanced view on p o t e n t i a l watar shor tages .

Reservoir Operations

GAO conclus ion (pg 33 ) : "Complete opera t ing c r i t e r i a a r e needed s o t h e b a s i n ' s water o f f i c i a l s can p lan t h e i r opera t ions dur ing a shor tageu and t h a t t h e time a v a i l a b l e t o s e t t he se c r i t e r i a may be s h o r t e r than expected by t h e Bureau.

I n 1970, a f t e r consu l t a t i on wi th r e p r e s e n t a t i v e s of t h e seven b a s i n s t a t e s , t h e Secre ta ry of I n t e r i o r promulgated t h e C r i t e r i a f o r Coordinated Lon Flange Operation of Colorado River Reservoi rs pursuant t o P. L. 98-53'?. Since January 1972, t h e Sec re t a ry has i s sued a n annual r epo r t descr ib ing t h e a c t u a l opera t ion under t h e adopted c r i t e r i a f o r t h e preceding year and p ro j ec t ed opera t ions f o r t h e cu r r en t year .

The GAO d r a f t concluded t h a t more s p e c i f i c r u l e s a r e needed. As t h e e a r l i e r d i s cus s ion ind i ca t ed , t h e p r o b a b i l i t y is high t h a t t h e Colorado River Basin s t a t e s w i l l not f a c e a shor tage cond i t i on f o r many years t o come. Thus, t h e r e is no immediate need f o r more s p e c i f i c r e s e r v o i r operat ing c r i t e r i a . Fu r the r , it should be noted t h a t t h e reasons why t h e adopted c r i t e r i a d i d not con ta in more s p e c i f i c opera t ing r u l e s a r e due t o f a c t o r s i n a d d i t i o n t o d i s - agreements a s t o s p e c i f i c s of operat ing r u l e s .

Since t h e t ime when shor tages w i l l occur a r e many yea r s i n t h e f u t u r e , it is unwise t o e s t a b l i s h r i g i d opera t ing r u l e s a t this t ime s i n c e t h e cu r r en t f l e x i b l e approach is t h e bes t way t h a t changing condi t ions can be given proper weighting a t t h a t t ime when s p e c i f i c r u l e s a r e requi red . It should be recognized t h a t t h e cu r r en t operat ing c r i t e r i a do con ta in a d e s c r i p t i o n of a l l of t h e f a c t o r s t h a t t h e Secre ta ry of t he I n t e r i o r i s t o cons ider i n a r r i v i n g a t h i s dec is ions . Since t h e f a c t o r s w i l l change i n t h e i r s i g n i f i c a n c e over t ime, it would be a mistake t o prematurely s e t s p e c i f i c opera t ing r u l e s . U n d e r t h e cu r r en t opera t ing c r i t e r i a , t h e necessary dec i s ions on s p e c i f i c opera t ing c r i t e r i a dur ing sho r t age condi t ions can be made c l o s e r t o t h e t ime when t h e d e c i s i o n s a r e necessary, and can then more c o r r e c t l y r e f l e c t t h e r e l a t i v e weighting and importance of t he f a c t o r s i d e n t i f i e d i n t h e c u r r e n t c r i t e r i a .

APPENDIX XV

This recommendation should be deleted f o r the reasons given i n the above discussion. If t h i s recommendation were t o be given and subsequently followed, it would lead t o unnecessary d i spu tes among the bas in s t a t e s and betvsen the s t a t e s and f ede ra l government. It would a l s o l ead t o attempts f o r addi t ional l e g i s l a t i o n and prot rac ted l i t i g a t i o n .

CHAPTER 3

Domestic Colorado River Basin S a l i n i t y Control Program

S a l t Removal- by S a l i n i t y Control Program

GAO conclusion (p. 55) : "It is doubtful t h a t t he cu r ren t s a l i n i t con t ro l proeram w i l l reduce the salt i n the r i v e r a s much a s predicted."

Estimates of salt removal by the s a l i n i t y con t ro l program change as the inves t iga t ions continue and more becomes known about each of t h e p r o j e c t s i n the program. Some of t h e p ro jec t s a r e now est imated t o remove l e s s salt than o r i g i n a l l y while o the r s are est imated t o remove more. The o r ig ina l es t imates of salt removal by t h e USBR s a l i n i t y cont ro l p ro jec t s which were shown i n t h e 1975 repor t by t h e seven-state Colorado River Basin S a l i n i t y Control Forum was 1,644,000 tons pe r year. The amount shown i n the 1978 Forum Report, a f t e r removal of t h e Crys ta l Geyser, Colorado River Indian Reservation and Palo Verde I r r i g a t i o n D i s t r i c t pro jec ts , and a f t e r s u b s t a n t i a l reduc- t i o n f o r t h e Las Vegas Wash Project and addi t ion of t h e Meeker Dome Pro jec t was 1,901,000 tons per year. Overall, t he s a l i n i t y con t ro l program is now estimated t o remove more than o r i g i n a l l y est imated.

Thus, t h e statements and conclusions i n t h e r epor t (pgs. 39 and 5 5 ) t h a t t he program w i l l not remove a s much salt as o r i g i n a l l y predicted a re not supportable.

Relationshiw of S a l i n i t y Control "fcofi~am t o S a l i n i t y Standards

GAO conclusion (p. 55) : ". . . t he s a l i n i t y cont ro l plan, even i f implemented successfu l ly , will not by i t s e l f achieve t h e water a u a l i t y standards es tabl i shed f o r the basin.''

Although the USER s a l i n i t y cont ro l program authorized by P.L. 93-320 is expected t o play a major r o l e i n meeting s a l i n i t y s tandards i n t h e fu tu re , it is not the only element being r e l i e d upon. There a r e o the r po ten t i a l s a l i n i t y cont ro l p ro jec t s and s t i l l o t h e r s could develop i n time. F o r example, t he USBR is cur ren t ly studying t h e Meeker Dome Projec t , and ELM is studying the p o s s i b i l i t y of development of d i f f u s e source s a l i n i t y cont ro l p ro jec t s on areas under ELM j u r i s d i c t i o n t h a t produce high r a t e s of s a l t loading t o t h e Colorado River system. Both of these p o s s i b i l i t i e s were not i n t h e list of o r i g i n a l p ro jec t p o s s i b i l i t i e s . Further , i f s h i f t s occur i n fu tu re uses of water within t h e Upper Colorado River Basin from i r r i g a t e d ag r i cu l tu re t o i n d u s t r i a l use, t h e r e would be a decrease i n the amount of salt pickup t h a t would occur within the Basin. I n addit ion, a s i g n i f i c a n t cont r ibut ion t o s a l i n i t y cont ro l is expected from non-federal ac t ions .

APPENDIX XV I

APPENDIX XV

The whole mat ter of meeting s a l i n i t y s tandards is complex and dynamic. It depends upon sa l t inflow, water supply, r e s e r v o i r opera t ions , r a t e of increase of water use i n t h e Upper Basin, loca- t i o n and type of use, progress of s a l i n i t y con t ro l and o the r f a c t o r s . In reco n i t i o n of these f a c t o r s and the need f o r per iodic review? and t o corn f y with Section 303 of P.L. 95-21'?, t he seven-state Colorado R e a n S a l i n i t y Control Forum has a three- e a r review schedule f o r t h e s tandards and plan of implementation. The 1978 d r a f t was recen t ly completed an'J public hearings were held. A recent example of a changing s i t u a t i o n concerns the all important mat ter of salt inflow. The 1978 d r a f t Forum repor t revealed t h a t salt inf low i n the bas in is 500,000 tons per year t o l.,OOO,OOO tons per year l e s s than used i n t h e current model. This mat ter w i l l be ex tens ive ly s tudied .

There were seve ra l comments i n the repor t rel .at ive t o t h e 1990 da te used f o r planning. The Forma l imi ted i ts p ro jec t ions t o 1990 s ince it was considered t h a t any p ro jec t ions beyond t h a t d a t e would be too specula t ive . This d a t e w i l l be extended i n t o t h e f u t u r e as new reviews w i l l be made.

The d i scuss ions on claiming i n t h e r epor t should be modified t o accura te ly expla in t h e dynamics of t h e USBR s a l i n i t y con t ro l program, o the r s a l i n i t y con t ro l a c t i v i t i e s , and the r e l a t i o n s h i p of a l l t hese f a c t o r s t o t h e standards.

Pro.ject F e a s i b i l i t y

GAO conclusion (p. 5 6 ) : '*. . . evaluat ion of the t echn ica l and $conoir'-c f e a s i b i l i t y of s a l i n i t y cont ro l pro.iects p r i o r t o authoriza- t i o n w i l l b e t t e r insure a workable and cos t e f f e c t i v e uroeram." -

Reference is made i n t h e repor t t o the author iza t ion f o r construc- t i o n of t h e f o u r s a l i n i t y con t ro l p ro jec t s by the 197A S a l i n i t y Control Act without f e a s i b i l i t y l e v e l r epor t s . Based upon t h i s information and t h e problems t h a t have developed with these p ro jec t s , t h e r epor t concludes t h a t f e a s i b i l i t y should be determined p r i o r t o author iza t ion . The 1974 au thor i za t ion based on reconnaissance l e v e l r e p o r t s was a unique s i t u a t i o n and is un l ike ly t o be repeated. The s t a t e s and t h e USBR do not quest ion t h a t author iza t ion should be based upon f e a s i b i l i t y r epor t s and current e f f o r t s by the USBR a r e geared t o t h a t end. This is an unnecessary conclusion t h a t should be de le ted .

Cost Effec t iveness of P ro lec t s

GAO conclusion ( . 56) : ". . . t h e c o s t s and bene f i t s of s a l i n i t y

pro.iects a r e chosen." ? contro l oro-iects shou d be considered s o t h a t t h e most cos t e f f e c t i v e

The r epor t concludes t h a t "costs and b e n e f i t s of s a l i n i t y c o n t r o l p ro jec t s should be considered so t h a t the most cos t e f f e c t i v e s a l i n i t y con t ro l p r o j e c t s a r e chosen". The conclusion a l s o conta ins some negative comments about t h e Crys ta l Geyser and Las Vegas Wash s a l i n i t y con t ro l p ro jec t s . AgainÃ t h e s e conclusions a r e unnecessary s ince t h e

APPENDIX XV

s t a t e s and t h e USBR have a l ready taken a c t i o n s with r e spec t t o t h e s e i tems. The problems with t he se p r o j e c t s have been recognized and s t a t e s have recommended and t h e USBR has concurred t h a t t h e Crys t a l Geyser P r o j e c t be de fe r r ed and t h a t t h e Las Vegas Wash P ro j ec t be de fe r r ed u n t i l a r ev i s ed s a l i n i t y con t ro l u n i t i s formulated. The cos t -benef i t in format ion i n t l i e r e p o r t comiencing on page 39 is misleading i n t h a t : ( a ) I n comparing b e n e f i t s and cos t s , it lumps all f o u r au thor ized s a l i n i t y p r o j e c t s r a t h e r than cons ider ing only t h e c u r r e n t a c t i v e Grand Valley and Paradox Valley P r o j e c t s , and (b ) It use s t h e most up-to-date project . c o s t f i g u r e s but- uses t he old USBR b e n e f i t f i g u r e of $230,000 p e r dl, r a t h e r than t he up-to-date USBR b e n e f i t f i g u r e of $343,000 p e r rog/l.

Also, i t should be r e a l i z e d t h a t approval f o r c o n s t r u c t i o n of s a l i n i t y con t ro l p r o j e c t s involves cons ide ra t i on of more f a c t o r s t han a s imple conparison of benefit . , and c o s t s . Congress recognized t h i s by s t a t i n g i n P.L. 93-320 t h a t "In r ecogn i t i on of Federa l r e s p o n s i b i l i t y f o r t h e Colorado River a s an i n t e r s t a t e s t ream and f o r i n t e r n a t i o n a l comity wi th Mexico, Federal ownership of t h e lands of t h e Colorado River Basin from which most of t h e d i sso lved s a l t s o r i g i n a t e , and t h e po l i cy embodied i n t h e Federal Water Po l lu t i on Control Act Amendments of 1972 (36 S t a t . 8 l6 ) , 75 pe r centun of t he t o t a l c o s t s of cons t ruc t i on , ope ra t ion , maintenance, and replacement of each u n i t o r s epa rab l e f e a t u r e thereof s h a l l be nonreimbursable. " Basinwide Water Management and g

GAO conclusion (pgs. 56 and 57): " S a l i n i t y c o n t r o l can b e s t be accomplished through b e t t e r basinwide manaeenrint of t h e t o t a l water r e sou rce s which cons ide r t r a d e o f f s between p r o j e c t s f o r water resource development and s a l i n i t y con t ro l . "

The r e p o r t does not i n d i c a t e -:hat is neant by b e t t e r basinwide management o r how it would reduce s a l i n i t y . The only r e f e r ence i n t h e r e p o r t regard ing water resource nanagement i s t he d i s c u s s i o n on page 4 8 concerning t h e September 1977 EPA-contracted s tudy . That s tudy was performed by t h e Denver Research Ir.-sti tute with t he ob j ec t i ve of i d e n t i f y i n g a c t i o n s t h a t could be :&en by t he Basin s t a t e s t o s i g n i f i - c a n t l y con t ro l s a l i n i t y . The r epo r t d i d not f i n d very much i n t h e way of r educ t i on of s a l i n i t y t h a t cou ld &e c t t a i n e d through b e t t e r water management. Many of t h e a c t i o n s i d e n t i f i e d i n t h e r e p o r t t h a t a r e f e a s i b l e a r e alres- ly being undertanen and Lhe s t a t e s have i nd i ca t ed a w i l l i n g r i e ~ s to fo l low through on e the r s t h a t appear t o be f e a s i b l e .

Delay i n Funding :or Sa l - in i ty Contrn! P r o j e c t s -

APPENDIX XV A P P E N D I X XU

This recornendat ion is not s u b s t a n t i a t e d by t h e in format ion s t a t e d i n t h e r e p o r t . The r e p o r t does no t i n d i c a t e an alternatives i; t o c o n t r o l l i n g s a l i n i t y . It does not recognize t h a t t e Bureau and t h e s t a t e s have worked coope ra t i ve ly f o r many yea r s t o develop s a l i n i t y c o n t r o l p l a n s and i n t end t o cont inue t o do so.

The S a l i n i t y Control Forum i n i t s adopted p l an of s a l i n i t y s t a n d a r d s and p l an of implementation does cons ider all known methods of c o n t r o l l i n g t h e r i v e r s s a l i n i t y , both through non-federal a c t i v i t i e s as w e l l a s t h e f e d e r a l U3BR s a l i n i t y c o n t r o l p r o j e c t s . The Forum d i d develop a comprehensive basin-wide program. Procedures have been e s t a b l i s h e d t o i nco rpo ra t e o t h e r s a l i n i t y c o n t r o l measures as they become known. Any de l ay i n funding s a l i n i t y c o n t r o l p r o j e c t s would r e s u l t i n i n c r e a s e s i n t h e r i v e r ' s s a l i n i t y which t he r e p o r t s tates (p. 3 6 ) "is inc rea s ing a t s i g n i f i c a n t r a t e s " .

One o f t h e problems with t h e s a l i n i t y con t ro l program is t h a t t h e USER has g iven it a r e l a t i v e l y low p r i o r i t y and t h i s , combined wi th o t h e r f a c t o r s , has r e s u l t e d i n s low cons t ruc t i on progress on t h e Paradox Valley and Grand Valley S a l i n i t y Control P r o j e c t s and d e l a y s i n completion of t h e f e a s i b i l i t y r e p o r t s . Recent ly, t h e Bureau ass igned a h igher p r i o r i t y t o t h e program and made o t h e r changes which should r e s u l t i n b e t t e r p rogress .

I n o r d e r t o achieve t h e o b j e c t i v e s s t a t e d i n t h e d r a f t r e p o r t , t h e recommendation should be t h a t Congress exped i t e r a t h e r t han d e l a y funding f o r t h e USBR s a l i n i t y con t ro l p r o j e c t s .

Mexican S a l i n i t y Problem

GAO recommendation (p. 57) : The Bureau should r eeva lua t e " the f e a s i b i l i t y of t h e Yuma Desaltine; Comdex cans ide r ine o t h e r l e s s c o s t l y a l t e r n a t i v e s t o i.mprove t h e a i i a l i t v 21" ,.-:ater d e l i v e r e d t o Mexico".

The only l e s s c o s t l y a l t e r n a t i v e i d e n t i f i e d i n t h e r e p o r t i s on page 55 where it, s t a t e s t h a t " In c o n t r a s t , t h e c o s t s of augmenting s t ream f lows have been es t imated a s low a s $3 an acre-footw. This is a very misleading s tateraent s i nce $1 an acre- foot water is not a v a i l - ab le anywhere i n t h e Colorado River Basin. This f i g u r e was presumably obtained fro?. a rough e s t ima te of t h e c o s t of water t o be ob ta ined f r o m weather nc-d i f ica t ion . Sir'.cc a demonstrat ion p r o j e c t on weather modif ' icat ion i n t.hq Colorado River Basin, being developed by t h e USBR has y e t t o cwz2nre , t h i s s h o - ~ l d ~ o t be l i s t e d as zn a l t e r n a t i v e . I? the GAO h;x; 3r.y altJernalive:a, :.hey should l i s t them.

The 88,UOO a f /y r sa lvage l i s t e d on pages 53 and 55 u n d e r s t a t e s xiie rirottuction ,Â¥ t h e d e s a l t i n g p l a n t . It is my understanding t h a t the pL-int i s t o . ..ivigc 11'1, X0' ai'/yr, 29: ?̂,̂ 'OO , j f i y .

APPENDIX XV

CHAPTER 4

Management Agency f o r t h e Colorado River Basin

GAO conclusion fr>, 6 9 ) : "Thebas in s t a t e s and f ede ra l ~ e n c i e s

The r e p o r t uses t he terms fragmented, c r i s i s or ien ted , l ack of cooperat ion between the s t a t e s and the s t a t e s and f e d e r a l agencies, re luc tance t o work together , no adequate mechanism f o r i n t e r s t a t e d i spu te s , and o t h e r s imi l a r language t o descr ibe water resources planning and management i n t h e basin (pgs. 59, 60 and pg ii of Digest 1. Based on t h e above judgment, t he repor t reaches the above conclusion and recommendation.

The basic judgments a re e s s e n t i a l l y wrong, which l eads t o an erroneous conclusion and improper recommendation.

For more than a decade, t he s t a t e agencies concerned with Colorado River mat te rs have worked toge the r on a cooperat ive b a s i s on complex Colorado River issues with a success t h a t o t h e r inves t iga- t o r s have considered t o be seldom equalled i n o t h e r par ts of t h e zsCicz. The s t a t e s have a l s o worked c lose ly with the appropr ia te f e d e r a l agen- c i e s . A p a r t i a l l i s t i n g of problens t h a t have been and are c u r r e n t l y being worked upon by cooperation among the Basin s t a t e s and f e d e r a l agencies fol lows. It should be noted t h a t s ince some of t hese problems a r e o f concern t o only some of t h e bas in s t a t e s and some o f t h e Federal agencies, only t h e agencies t h a t a r e d i r e c t l y concerned a re involved i n t h e a c t i v i t i e s leading t o r e so lu t ion of t h e p a r t i c u l a r problems. Also, many of t hese ac t ions commenced years i n advance of time when a so lu t ion was needed and could not poss ib ly be descr ibed as " c r i s i s oriented".

1. A Task Force with r ep resen ta t ion from California, Arizona, Department of Interior, USER, and Bureau of Land Mar.agecient analyzed t h e problems and developed a so lu t ion f o r obta in ing a water supply f o r lands along the Colorado River t h a t do not have water r i g h t s . The same Task fo rce developed procedures f o r h indl ing of i l l e g a l d i v e r t e r s f r o x t h e Lower Colorado River.

2. The Stat,< i ".<- Ariconi, Ca l i fo rn i a and Hevada, and the U.S. Departments of L';+ericr an". J- tic's negotiated a ssrplercental decree on t h e i y s u e of " i l o r i c h R x i c r nresczt sd pcrfect,e'i r ~ g h t : (pre-1929 water r i gh t ; ) and recently presented it t o t h e United S t a t ~ s Supreme Court a s p a r t of t he Ar izona 1:. Cal i fo rn i a Li t iga t ion .

APPENDIX X V APPENDIX XV

3 . C a l i f o r n i a , Arizona, and Nevada wa t e r resource and f i a h and w i l d l i f e agenc ies , and USBR, Bureau of Ind ian Affaira (BIA), Bureau of Spo r t F i s h e r i e s and Wi ld l i f e , formed t h e Lower Colorado River Management Coord ina t ing Committee t o coo rd ina t e River management ope ra t i ons a long t h e Lower Colorado River .

4. A Task Force i nvo lv ing C a l i f o r n i a , Arizona, Nevada, USBR, B I A , and U.S. Geolog ica l Survey have been a t tempt ing t o quan t i f y underground r e t u r n f lews t o t h e Colorado R ive r s o t h a t p roper c r e d i t w i l l be g iven t o t h e S t a t e s f o r t h e s e f lows i n accordance w i th t h e dec r ee i n Arizona v. C a l i f o r n i a .

5. A Task Force from C a l i f o r n i a , Arizona, and Nevada, USBR and U.S. Army Corps of Engineers have been reviewing p o s s i b l e changes i n f l o o d c o n t r o l r e g u l a t i o n s f o r t h e Colorado River Reservo i r s .

6 . The seven ba s in s t a t e s and USER have worked j o i n t l y i n ana lyz ing t h e adequacy of t h e ope ra t i ng c r i t e r i a and cons ide r i ng proposed changes.

7. The seven b a s i n s t a t e s j o i n t l y sponsored basin-wide l e g i s l a - t i o n i n 1968 (Pub l i c Law 90-537) and 1974 (Publ ic Law 93-320) t h a t developed basin-wide programs i n t h e a r e a of wate r development and s a l i n i t y contrlol.

8. The seven b a s i n s t a t e s j o i n t l y formed t h e Colorado R ive r Basit'i S a l i n i t y Cont ro l Forum and have worked wi th t h e Environmental P r o t e c t i o n Agency (EPA) and USER t o develop basin-wide s a l i n i t y s t anda rds i nc lud ing a p lan f o r implementation t h a t each s ta te may s e p a r a t e l y adopt f o r t h e purpose of c o n t r o l l i n g t h e s a l i n i t y of t h e Colorado River .

9. The seven b a s i n s t a t e s a r e working wi th t h e Department of I n t e r i o r , EPA, and Department of J u s t i c e t o defend t h e adopted s t anda rds i n a l a w s u i t broaght by t h e Environmental Defense Fund t o s e t a s i d e t h e s e s t anda rds .

10. The seven s t a t e Cormit tee o f Fourteen has worked w i th t h e I n t e r n a t i o n a l Boundary and Water Com-~.ission, U3BR and o t h e r f e d e r a l agenc ies on s o l u t i o n s t o Colorado River problems v iLh Mexico.

T h i s p a r t i a l l i s t i n g i n d i c a t e s t h e h i g h l e v e l o f coope ra t i on and coo rd ina t i on now e x i s t i n g on an e f f i c i e n t b a s i s , be t4ween t he s t a t e s and w i th concerned f e d e r a l agenc ies . There a l s o a r e many in formal r:eetings between concerned s t i t e agenc ies among t h e r s e l v e s and t h e i r f e d e r a l coun t e rpa r t s t h a t ,Ire no t l i s t e d . T h i s l e v e l o.? coopera t ion and coo rd ina t i on would not. be enhanced i f a basin-wide management agency were t o be e s t a b l i s h e d f o r t h e Colorado River Basin. Each of t h e e x i s t i n g feders1, 2n4 :t?.t>p a g e n c i e s :.-oncerned w i th Colorado River ~ifitter-; wcu2d 2 ; 1 I. l hv,?,~ t h e i r ro.:"cctiv-:' recpcnsibi! . i t j .es snd poin t 9 *~iew. 3i~'"'h sn y c n c y would:

. Add p e r ~ o n n e l and ~ 0 . : t z t h rough c r e a t i o n :I: ' I new bureaucracy

APPENDIX XV APPENDIX XV

2. c r e a t e a new bureaucracy t h a t would have t o be involved i n Colorado River matters;,

3 . have an extremely d i f f i c u l t t ime i n ob t a in ing people wi th expe r t is@ i n Colorado River mat te r s ,

4. i n c r ea se t h e work Laa'J cf' e x i s t i n g agenc ies i n o rde r t o monitor , ana lyze and comment 0 1 , t h e p r o p o s d s of t h e new agency,

5. involve all S t a t e and Federa l agenc ies i n t h e problems t h a t d i r e c t l y concern on ly s e v e r a l of t h e s t a t e s and f e d e r a l agencies ,

6. g e n e r a l l y tend t o increase t h e d i f f i c u l t y i n ob t a in ing a s o l u t i o n t o complex Colorado River problems,

7. not have t h e a u t h o r i t y t o do and t a k e t h e a c t i o n s l i s t e d i n t h e r e p o r t . I f it attempted t o do so , it would be sued by some i n j u r e d p a r t y .

The concept of a basin-wide agency has been considered and r e j e c t e d i n t h e p a s t and t h e r e is nothing i n t h e d r a f t GAO r e p o r t t h a t j u s t i f i e s c r e a t i o n of such an agency i n t h e f u t u r e . It is recommended t h a t t h e r e p o r t be r ev i s ed t o i nc lude examples of coopera t ion a s l i s t e d he r e in , and d i s c u s s t he s i g n i f i c a n c e of such coopera t ion i n nega t ing t h e need f o r ano ther agency. The concerned s t a t e s and f e d e r a l agenc ies should be urged t o con t inue and expand coopera t ive a c t i v i t i e s t h a t r e s u l t i n a sav ing t o t axpayers and avoid t h e need l e s s expenses t h a t would be a s soc i a t ed w i t h t h e development o f a new management agency.

Tota l Water Management

GAO recommendation (p . 3 5 ) : " . . . t h e S e c r e t a r y of I n t e r i o r d i rec t , t h e Bureau t o develop a comprpehensive p l an spec i fy ing t h e ~ s e r v a t i o n , wate r s a l v a ~ e , and a u ~ m e n t a t i o n techniques t h a t w i l l be used t o p revent o r minimize t h e adverse e f f e c t s of shor tages . "

The Total Water Management (TWM) concept is a l s o d i scussed i n o t h e r p l a c e s i n t h e r e p o r t , ( ~ g s . 56, and 65 t o 6 8 ) . On page 65, it - - is de f ined a s f o l l o w s : ". . . a system of mmapine w a t e r r e sou rce s t h a t i n t e g r a t e s a l l a s p e c t s o f wate r development i nc lud ing water q u a l i t y , a u a n t i t y and environmental concerns."

Although t h e TWM name is new, similar concepts have been app l i ed i n t h e Westwide r e p o r t , Nat ional Assessment r e p o r t , and o t h e r Colorado River s t u d i e s without any p a r t i c u l a r l y f r u i t f u l r e s u l t s . "Conservation" has been mentioned a s p a r t of t h e TWM concept. It should be recognized t h a t wate r u s e r s of t h e lower Colorado River a r e among t h e most e f f i c i e n t i n t h e United S t a t e s and w i l l become even more e f f i c i e n t a s t h e per iod o f s u r p l u s Colorado River water ends i n t h e nex t decade.

"Al te rna t ives" i s a n ~ t h e r f r e q u e n t l y used word. There is very l i t t l e oppo r tun i t y f o r ' a l t e r n a t i v e s i n t h e Lower Colorado River Basin. C a l i f o r n i a expec t s t o reduce i t s Colorado River use once t h e Cen t r a l

APPENDIX X V A P P E N D I X XV

Arizona P ro j ec t commences major d e l i v e r i e s . Arizona has committed a l l of i ts a v a i l a b l e supply t o t h i s p r o j e c t and Nevada has committed all of i t s a v a i l a b l e supply t o t h e Southern Nevada P r o j e c t . The Upper Basin is i n a dynamic s i t u a t i o n , wi th t he exac t mix of f u t u r e u s e s of Basin wa t e r r e sou rce s s t i l l unresolved. All a s p e c t s of t h e impact o f wate r resource development w i l l be analyzed and cons idered when d i f f e r e n t p ropox i l s a r e made f u r developing any of t h e wate r r e sou rce s w i th in t h e Upper Basin.

The s t a t emen t s on pages 66 and 67 do no t c o r r e c t l y p r e s e n t t h e b a s i n s t a t e s concern wi th t h i s program. The s t a t e s cons idered t h a t t h e program was unnecessary s i n c e s i m i l a r gene ra l i z ed r e p o r t s have been prepared i n t h e p a s t f o r t he Colorado River Basin and t h e more s p e c i f i c i t ems were a l ready inc luded i n s t u d i e s o f i n d i v i d u a l p r o j e c t s . These s t u d i e s i nc lude t h e p r epa ra t i on of bo th f e a s i b i l i t y r e p o r t s and environmental impact s t a t emen t s which r e q u i r e s t udy of all p o s s i b l e a l t e r n a t i v e s , i nc lud ing non-s t ruc tura l measures, and i d e n t i f y and a s s e s s t h e impact of a l t e r n a t i v e s on t h e environment as w e l l a s on p r o j e c t b e n e f i c i a r i e s . S ince t h e proposed program's o b j e c t i v e s were a l r e ady covered i n t h e on-going s t u d i e s , t h e proposed program would have been d u p l i c a t i v e , wast ing t ime, personne l , and money, w i t h no d i s c e r n i b l e advantage t o be ob ta ined .

While opposing t h e proposa l f o r TWM, t h e ba s in s t a t e s a r e a c u t e l y aware of t h e need f o r good management of t h e Colorado R ive r ' s wa t e r resources . The Colorado R ive r Basin and s e r v i c e a r e a i n c l u d e s a huge a r e a cover ing p o r t i o n s of seven s t a t e s and Mexico. There a r e numerous c o n f l i c t i n g demands on t h i s r i v e r t h a t r e s u l t i n many complex problems, which w i l l r e q u i r e c a r e f u l management f o r r e s o l u t i o n . Some of t h e s e problems have been reso lved over t ime , o t h e r s have been p a r t i a l l y reso lved , o t h e r s a r e unresolved and new problems a r i s e from t ime t o t ime. The b a s i n s t a t e s and concerned f e d e r a l agenc i e s a p p r e c i a t e t h e a t t e n t i o n g iven t o some of t h e s e problems by t h e GAO and would welcome any h e l p -ha t could be rece ived from recommendations s e n t t o Congress by t h e GAD.

I n cons ide r i ng a spec t s of t h e o v e r a l l management of t h e ba s in , t h e r e p o r t should a l s o disc,..iss t h e b e n e f i t s t h a t t h e 9 a s i n s t a t e s and t h e n a t i o n a s a whole have de r i ved from t h e development of t h e Bas in ' s wate r r e sou rce s t o d a t e . This would a s s i s t i n t h e development of a b e t t e r pe r spec t i ve on t h e Colorado River , i t s problems and p o t e n t i a l solut . ions.

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