SOCIAL IMPLICATIONS OF SEVERE SUSTAINED DROUGHT CASE STUDIES IN CALIFORNIA AND COLORADO1

ABSTRACT: Survey data collected in the San Joaquin Valley of southern California and the Grand Valley of western Colorado reveal that residents of both areas believe that a severe sustained drought is likely to occur within the next 20–25 years and that their communities would be seriously impacted by such an event. Although a severe sustained drought affecting the Colorado River Basin would cause major economic and social disruptions in these and other communities, residents express little support for water management alternatives that would require significant shifts in economic development activities or in water use and allocation patterns. In particular, residents of these areas express little support for strategies such as construction and growth moratoriums, mandatory water conservation programs, water transfers from low-to high-population areas, water marketing, or reallocations of water from agricultural to municipal/industrial uses. This rejection of water management strategies that would require a departure from “business as usual” with respect to water use and allocations severely restricts the capacity of these and similar communities to respond effectively should a severe sustained drought occur.     

THE LAW OF THE COLORADO RIVER: COPING WITH SEVERE SUSTAINED DROUGHT1

ABSTRACT: The waters of the Colorado River are divided among seven states according to a complex ‘Law of the River’ drawn from interstate compacts, international treaties, statutes, and regulations. The Law of the River creates certain priorities among the states and the Republic of Mexico, and in the event of a severe sustained drought, the Law of the River dictates the distribution of water and operation of the elaborate reservoir system. Earlier work indicated that there is remarkable resilience in the system for established uses of water in the Lower Basin of the Colorado River. This work shows, based on an application of the Law of the River using computer modeling of operations of facilities on the Colorado River, that there may be serious environmental consequences and related legal restraints on how the water is used in times of shortage and that the existing legal and institutional framework governing the Colorado River does not adequately address all the issues that would be raised in a severe sustained drought. Several possible legal options for dealing with drought in the context of the Law of the River are identified.     

COPING WITH A SEVERE SUSTAINED DROUGHT ON THE COLORADO RWER: INTRODUCTION AND OVERVIEW1

ABSTRACT: In arid regions of rapid economic and population growth, adverse effects of droughts are likely to be increasingly serious. This article presents an introduction and overview of the papers collected in this special issue of the Water Resources Bulletin. The papers report on the second phase of a study of the impacts of and responses to a potential severe sustained drought in the Colorado River Basin in the southwestern U.S. The analyses were performed by a consortium of researchers from universities and the private sector located throughout the Basin. Tree ring studies suggest that droughts of duration and magnitude much more serious than any found in the modern records probably occurred in the Basin during earlier centuries. Taking the present-day configuration of the storage and diversion structures and the economic conditions in the Basin as the base-point, the general objectives of the study are three: first, to define a representative Severe Sustained Drought (SSD) and assess its hydrologic impacts; second, to forecast the economic, social and environmental impacts on the southwestern U.S.; and finally, to assess alternative institutional arrangements for coping with an SSD. The evaluation of impacts and policies was conducted with two distinct modeling approaches. One involved hydrologic-economic optimization modeling where water allocation institutions are decision variables. The second was a simulation-gaming approach which allowed “players” representing each basin state to interact in a real-time decision making mode in response to the unfolding drought.     

A GAMING EVALUATION OF COLORADO RWER DROUGHT MANAGEMENT INSTITUTIONAL OPTIONS1

ABSTRACT: Researchers representing each of the Colorado River Basin states as well as the Secretary of the Interior were presented with an interactive computer simulation of a progressively increasing drought and were given the collective opportunity to change the ways in which basin-wide and within-state water management were conducted. The purpose of this “gaming” exercise was to identify rules for managing the Colorado River which are effective in preventing drought-caused damages to basin water users. This water management game was conducted three times, varying the collective choice roles for management of the river yet staying substantially within the current institution for management of the Colorado River known as the “Law of the River.” The Law of the River was quite effective in minimizing drought impacts upon consumptive water uses. Additional effective drought-coping measures to protect consumptive uses consisted mostly of intrastate water management improvements which states were able to implement independently. The Law of the River did not protect non-consumptive water uses, such as hydroelectric power generation, water-based recreation, endangered species, and water quality from drought, as well as it protected consumptive water uses. Players reached collective choice decisions to cope with rising salinity, equalize storage between the upper and lower basins, and protect endangered species. While these measures had some success, only reductions in withdrawals for consumptive uses, particularly in the upper basin, could have substantially lessened adverse impacts.     

THE TREE-RING RECORD OF SEVERE SUSTAINED DROUGHT1

ABSTRACT: Frequent and persistent droughts exacerbate the problems caused by the inherent scarcity of water in the semiarid to arid parts of the southwestern United States. The occurrence of drought is driven by climatic variability, which for years before about the beginning of the 20th century in the Southwest must be inferred from proxy records. As part of a multidisciplinary study of the potential hydrologic impact of severe sustained drought on the Colorado River, the physical basis and limitations of tree rings as indicators of severe sustained drought are reviewed, and tree-ring data are analyzed to delineate a “worst-case” drought scenario for the Upper Colorado River Basin (UCRB). Runs analysis of a 121-site tree-ring network, 1600–1962, identifies a four-year drought in the 1660s as the longest-duration large-scale drought in the Southwest in the recent tree-ring record. Longer tree-ring records suggest a much longer and more severe drought in 1579–1598. The regression estimate of the mean annual Colorado River flow for this period is 10.95 million acre-feet, or 81 percent of the long-term mean. The estimated flows for the 1500s should be used with caution in impact studies because sample size is small and some reconstructed values are extrapolations.     

MUNICIPAL WATER USE AND WATER RATES DRIVEN BY SEVERE DROUGHT: A CASE STUDY1

ABSTRACT: This paper synthesizes and interprets data pertaining to the evolution of average water revenue, water use, and the average cost of water supply in the City of Santa Barbara, California, from 1986 to 1996, a period which included one of the most devastating droughts in California this century. The 1987–1992 drought hit the study area particularly hard. The City of Santa Barbara was dependent exclusively on local sources for its water supply. That made it vulnerable as the regional climate is prone to extreme variability and recurrent droughts. The 1986–1992 drought provided a rare opportunity to assess the sensitivity of municipal water use to pricing, conservation, and other water management measures under extreme drought conditions. Our analysis indicates that the average cost of water rose more than three-fold in real terms from 1986 to 1996, while the gap between the average cost of supply and the average revenue per unit of water (= 100 cubic feet) rose in real terms from $0.14 in 1986 to $ 0.75 in 1996. The rise of $3.08 in the average cost of supplying one unit of water between 1986 and 1996 measures the cost of hedging drought risk in the study area. Water use dropped 46 percent at the height of the drought relative to pro-drought water use, and remains at 61 percent of the pre-drought level. The data derived from the 1987–1992 California drought are unique and valuable insofar as shedding light on drought/water demand adaptive interactions. The experience garnered on drought management during that unique period points to the possibilities available for future water management in the Arid West where dwindling water supplies and burgeoning populations are facts that we must deal with.     

USE OF A HYDROLOGIC MODEL IN A BASIN-WIDE WATER ALLOCATION PROCEEDING1

ABSTRACT: The Montana Department of Natural Resources and Conservation developed a hydrologic model to help analyze the effects of allocating water for consumptive and instream uses in the upper Missouri River basin of Montana. The model, a PC-based FORTRAN program, uses a mass-balance approach to compute monthly streamflows, reservoir operations, hydropower production, and irrigation and municipal water uses throughout the 54,000 square mile basin for a 59-year base period. Simulation results are presented as monthly mean and percentile-exceedence values. The model was run for baseline conditions and six hypothetical water-allocation alternatives. Results were used by staff resource area specialists to assess potential impacts to water quantity and distribution, water rights, water quality, stream channel form, fisheries, wildlife, recreation, hydropower production, and economics. These analyses were presented to the public and the decision-making board in an environmental impact statement (EIS). Though, in many instances, the model did not allow for detailed, site-specific analyses, the model was an important tool and its simulation results formed the hydrologic basis for the EIS.     

ASSESSING ENVIRONMENTAL EFFECTS OF SEVERE SUSTAINED DROUGHT1

ABSTRACT: Evaluation criteria for reservoir and stream resources were developed to provide decision makers with feedback on environmental consequences of water allocation decisions under conditions of severe sustained drought within the Colorado River Basin by using the AZCOL gaming simulation model. Seven categories of flow dependent resources were identified which highlight resource states associated with reservoirs or river reaches within the AZCOL model. AZCOL directly simulates impact of water management decisions on five resource categories: threatened, endangered or sensitive fish; native nonlisted fish; wetland and riparian elements; national or state wildlife refuges; and hatcheries or other flow dependent facilities. Two additional categories - cold and warm water sport fish - are not modeled explicitly but are incorporated in the evaluation of monetary benefits from recreation on Colorado River waters. Each resource category was characterized at each time step in the simulation according to one of four environmental states: stable, threatened, endangered, or extirpated. Changes in resource states were modeled by time and flow-dependent decision criteria tied to either reservoir level or stream flows within the AZCOL model structure. Gaming results using the AZCOL model indicate environmental impacts would be substantial and that water allocation decisions directly impacted environmental resource states.     

RESPONDING TO DROUGHT: COMMON THREADS FROM THE PAST,VISIONS FOR THE FUTURE1

ABSTRACT: A number of studies conducted since the late 1970s have evaluated state and federal responses to drought in the United States. Each of these studies identified a number of key issues and impediments that needed to be addressed to improve the nation's ability to cope with and prepare for future episodes of drought. A content analysis of these studies was performed to identify common threads in their recommendations. The premise of this analysis was that the series of drought years that occurred between 1986 and 1992 and recurred between 1994 and 1996 increased awareness of our nation's continuing and apparent growing vulnerability to drought. This awareness has led to greater consensus among principal constituents and stakeholders, and also a greater sense of urgency to implement actions now to lessen vulnerability. The results of this analysis revealed that several themes recur: create an integrated national drought policy and plan; develop an integrated national climate monitoring (drought watch) system; incorporate drought in FEMA's National Mitigation Strategy; conduct post-drought audits of response efforts; establish regional drought forums; and encourage development of state drought mitigation plans.     

INSTITUTIONAL OPTIONS FOR THE COLORADO RIVER1

ABSTRACT: In many interstate river basins, the institutional arrangements for the governance and management of the shared water resource are not adequately designed to effectively address the many political, legal, social, and economic issues that arise when the demands on the resource exceed the available supplies. Even under normal hydrologic conditions, this problem is frequently seen in the Colorado River Basin. During severe sustained drought, it is likely that the deficiencies of the existing arrangements would present a formidable barrier to an effective drought response, interfering with efforts to quickly and efficiently conserve and reallocate available supplies to support a variety of critical needs. In the United States, several types of regional arrangements are seen for the administration of interstate water resources. These arrangements include compact commissions, interstate councils, basin interagency committees, interagency-interstate commissions, federal-interstate compact commissions, federal regional agencies, and the single federal administrator. Of these options, the federal-interstate compact commission is the most appropriate arrangement for correcting the current deficiencies of the Colorado River institution, under all hydrologic conditions.     

HYDROLOGIC SCENARIOS FOR SEVERE SUSTAINED DROUGHT IN THE SOUTHWESTERN UNITED STATES1

ABSTRACT: This paper considers the risk of drought and develops drought scenarios for use in the study of severe sustained drought in the Southwestern United States. The focus is on the Colorado River Basin and regions to which Colorado River water is exported, especially southern California, which depends on water from the Colorado River. Drought scenarios are developed using estimates of unimpaired historic streamflow as well as reconstructions of streamflow based on tree ring widths. Drought scenarios in the Colorado River Basin are defined on the basis of annual flow at Lees Ferry. The risk, in terms of return period, of the drought scenarios developed, is assessed using stochastic models.     

TEACHING WATER RESOURCES POLICY TO UNWERSITY SCIENCE AND ENGINEERING STUDENTS: OPPORTUNITIES AND CHALLENGES1

ABSTRACT: Effectively teaching water resources policy to university science and engineering students is both important and difficult. Most careers in the water resources field require an understanding of the comprehensive governmental regulatory structure affecting water use. Also, few science and engineering curricula encourage their students to take policy courses. Successful approaches to teaching water resources policy might include epistemological comparisons, case studies, issue maps, and interactive simulations. Obstacles to the effective teaching of this subject include students' insufficient preparation and student disdain and cynicism. These obstacles may be mitigated by requiring a prerequisite, developing a glossary of policy-related terms, and introducing the course through lectures emphasizing realistic views of the water resources management field and the nature of the American political system.     

COUNTY COMMISSIONERS' WATER KNOWLEDGE1

ABSTRACT: This study examines the social construction of county commissioners' knowledge about water. Factors that influence what commissioners know about water include each commissioner's personal characteristics, education, experience in natural resources management, involvement in policy making, and use and evaluation of various sources of information. This study focused on county commissioners representing rural, mixed, and urban counties in Arizona, Nevada, and Utah and collected data through mail surveys and interviews. County commissioners in the survey were well educated; however, few had taken college courses directly addressing technical, management, or legal aspects of water issues. Approximately one-third had direct experience in farming and ranching; nearly two-thirds indicated that farming and ranching played a major role in their communities. Respondents had experience with a broad range of water policy issues. In evaluating thirteen information sources in terms of their frequency of use, relevancy, and reliability, respondents assessed fellow commissioners and local government staff and managers most positively and nonprofit organizations most negatively. The media was also broadly rated as less relevant and reliable than other sources of information. The commissioners in the study expressed a high level of general concern about water issues and a strung preference for local sources of information.     

SOCIO-ECONOMIC CONSIDERATIONS IN WATER RESOURCES PLANNING1

Historically, the main objective of water resources development has been economic efficiency, and the technique for its evaluation has been benefit-cost analysis. Gradually other objectives have emerged, and these in order of their emergence are regional income redistribution, environmental quality and social well-being. These multi-objectives have given rise to multifarious problems, and have made the planning process much more complex than ever before. The different objectives are not mutually exclusive, and, hence, contributions to one can only be made at the expense of others. Trade-off studies between different objectives are difficult to make. It is suggested that one way to overcome this difficulty could be to design a system to perform optimally in terms of one objective, subject to a specified level of performance of the other, which in effect becomes a constraint. The paper also discusses the pros and cons of the desirability of public participation in our decision-making processes, and the necessity of developing social sciences models to aid water planning and management.     

PATTERN OF GROUND-WATER LEVEL DECLINE IN THE HIGH PLAINS AQUIFER NEBRASKA1

ABSTRACT: Ground-water level decline patterns in parts of Nebraska conform to the circular island concept of Bredehoeft et al. (1982), which indicates how water is derived by wells developed in a circular island. If elongated, the center of the island corresponds to a regional ground-water divide while the shoreline corresponds to a regional river. In both versions, ground-water table elevation is a function of recharge and transmissivity. A dynamic equilibrium exists such that the gradient of the water table will convey all recharge to discharge areas. Withdrawals of ground water result initially in mining, with a new equilibrium attained when pumping equals capture. During early development, capture is an important source of water in discharge areas, while mining is more significant in recharge areas. The pattern observed in many areas shows the greatest ground-water level decline in the vicinity of ground-water divides and the steepest gradient near regional rivers. A similar pattern has been observed adjacent to the Arkansas River in south-central Kansas. Similar decline patterns can be modeled for a hypothetical ground-water basin. This is of major importance to water-resource managers because it dictates that management programs be applied to the entire hydrologic system.