CAN STATE AND LOCAL GOVERNMENTS ASSUME MORE OF THE COSTS OF WATER DEVELOPMENT?1

ABSTRACT As availability of funds in the federal budget for water development has decreased recently, pressure has increased for state and local governments to pay a larger share of the costs. In this situation a difficult question immediately arises-what is the capability of state and local governments to pay a larger share? Of course, there is no easy answer. Expenditures of public funds are policy outcomes of a government's political process in which political, economic, legal and other factors are involved in complex relationships. The traditional sources of capital funds for state and local governments include bond proceeds, tax revenues, and federal financial aid (state aid is also a major source of local government funds). The issuing of bonds is hampered by a variety of legal debt limitations, but there are means for circumventing the limitations. State and local governments vary widely in amounts of taxable resources available and in the extent to which these resources have been tapped. More effective use of revenue resources could be made in some cases. New sources of capital funds for water development ought to be considered-a fee on the use of water per se, for example. Costs associated with water use currently are imposed to cover development costs, but a state might impose additional use fees earmarked for a state water development fund.     

Environmental Management and the New Politics of Western Water: The Animas-La Plata Project and Implementation of the Endangered Species Act

/ This paper explores the new politics of western water policy through an examination of the Animas-La Plata water project and implementation of the Endangered Species Act. It is suggested that the focus of western water programming has shifted from the source of distributed funds, the United States Congress, to the agencies originally created to deliver federal benefits because funding for new project construction has not been forthcoming. Under this new system, members of Congress continue to excite their constituents with promises of money for new project starts, while the administrative agencies perform the myriad duties needed to keep these projects alive. The result is that political objectives have replaced operational/management objectives in administrative processes. In this case, the author demonstrates how resource managers in the Bureau of Reclamation manipulated hydrological analysis to control administrative process, why their manipulation was unfair, and perhaps illegal, and why biologists from the US Fish and Wildlife Service accepted the analysis. While ostensibly protecting all interests, the result is that none of the objectives of federal water programming are achieved. KEY WORDS: Environmental management; Administrative politics; Water policy; Endangered Species Act; Animas-La Plata, Bureau of Reclamation     

Evaluating agricultural nonpoint-source pollution programs in two Lake Erie tributaries

During the past three decades, numerous government programs have encouraged Lake Erie basin farmers to adopt practices that reduce water pollution. The first section of this paper summarizes these state and federal government agricultural pollution abatement programs in watersheds of two prominent Lake Erie tributaries, the Maumee River and Sandusky River. Expenditures are summarized for each program, total expenditures in each county are estimated, and cost effectiveness of program expenditures (i.e., cost per metric ton of soil saved) are analyzed. Farmers received nearly $143 million as incentive payments to implement agricultural nonpoint source pollution abatement programs in the Maumee and Sandusky River watersheds from 1987 to 1997. About 95% of these funds was from federal sources. On average, these payments totaled about $7000 per farm or about $30 per farm acre (annualized equivalent of $2 per acre) within the watersheds. Our analysis raises questions about how efficiently these incentive payments were allocated. The majority of Agricultural Conservation Program (ACP) funds appear to have been spent on less cost-effective practices. Also, geographic areas with relatively low (high) soil erosion rates received relatively large (small) funding.     

WHO GETS CLEAN WATER? AID ALLOCATION TO SMALL WATER SYSTEMS IN PENNSYLVANIA1

ABSTRACT: Research on the condition of drinking water provision in the United States documents the inequitable financial impact of environmental regulations on small water systems (those serving 3,300 or fewer people). While a variety of federal and state financial assistance programs are available for water systems, few quantitative analyses have evaluated the success of these programs in alleviating the problems of small systems. A case study of the largest aid initiative for water supply infrastructure in Pennsylvania provides the empirical framework through which to analyze government funding opportunities for water systems. This study examines the allocation practices of the Pennsylvania Infrastructure Investment Authority (PENNVEST) to water systems of varying sizes. Utilizing data from PENNVEST applications and the Pennsylvania Department of Environmental Protection, the distribution of PENNVEST award recipients and denied applicants by size characteristics are compared. The study indicates that very small water systems (those serving 500 or fewer) do not apply for or receive funds with the same frequency as their larger counterparts. Understanding the allocation of awards from PENNVEST offers insight into the ability of small communities to access capital for water supply infrastructure.     

The role of FIDEICOMISO of non-metallic minerals

FIDEICOMISO of non-metallic minerals is a trust development fund aimed at providing credit and technical assistance for the exploitation, beneficiation and downstream processing of non-metallics. FIDEICOMISO'S funding comes from, in order of importance, the World Bank, operational revenues and federal funds. It is a second tier financial institution operating through the commercial banking system, the latter providing the retail role. In 1987 and 1988 the FIDEICOMISO approved credits for $23 million and $46 million respectively.     

DINOSAUR NATIONAL MONUMENT: THE EVOLUTION OF A FEDERAL RESERVED WATER RIGHT1

ABSTRACT: Dinosaur National Monument, in northwestern Colorado, has become a test case in the establishment of a federal reserved water right to instream flows. For the first time, the Interior Department was forced to rigorously defend its claims in a watershed where the federal government did not control the upstream reaches. Inadequate quantification of minimum flow requirements, court orders, and an apparent Congressional ban on the spending of Water Resources Program funds by the Park Service to quantify its water rights have already placed the Service in a difficult position to protect instream flows for maintaining the ecological integrity of the Monument. As late as 1983, administrators of the Park Service were divided over their legal strategy, many wanting to pursue a policy of claiming “natural, historic” flows rather than “minimum” flows. The conditional right to instream flows panted to the Park Service in 1978 was subject to quantification within five years. That deadline has been extended, but it is not likely that the case will reach final settlement this decade. Until the design and conduct of federal water rights quantifications better integrate public policy and law with science, the principle lesson from Dinosaur may have to be repeated.     

Prairie dog poisoning in northern Great Plains: An analysis of programs and policies

This paper describes the programs and policies regarding prairie dog control in the northern Great Plains states of Montana, South Dakota, and Wyoming. The poisoning programs of federal and state agencies are described, along with the statutes and legal mandates that shape agency management of prairie dogs. Current policies on National Grasslands and other federal lands typically limit prairie dogs to small percentages of available potential habitat, to the detriment of prairie dogs and associated species. State programs to assist landowners in prairie dog control differ greatly, employing cost-share incentives (Wyoming) and regulatory fines (South Dakota) to encourage the poisoning of prairie dogs. Prairie dog control is not actively funded or practiced by state or county agencies in Montana. We document federal and state involvement in more than 1 million acres of prairie dog poisoning in the study area during 1978–1992. In combination with undocumented poisoning by private landowners, plague, and shooting, prairie dogs may be experiencing net regional declines, contributing to the disintegration of the prairie dog ecosystem. We recommend that Animal Damage Control operations concerning prairie dogs be terminated, on the basis that they duplicate state programs and are at cross purposes with federal wildlife management programs that seek to perpetuate and/or recover wildlife species that depend on the prairie dog ecosystem. We further recommend that federal range improvement funds be offered as subsidies for the integration of prairie dogs in range management, as opposed to funding prairie dog eradication programs.     

A Quantitative Method for Estimating Probable Public Costs of Hurricanes

/ A method is presented for estimating probable public costs resulting from damage caused by hurricanes, measured as local government expenditures approved for reimbursement under the Stafford Act Section 406 Public Assistance Program. The method employs a multivariate model developed through multiple regression analysis of an array of independent variables that measure meteorological, socioeconomic, and physical conditions related to the landfall of hurricanes within a local government jurisdiction. From the regression analysis we chose a log-log (base 10) model that explains 74% of the variance in the expenditure data using population and wind speed as predictors. We illustrate application of the method for a local jurisdiction-Lee County, Florida, USA. The results show that potential public costs range from $4.7 million for a category 1 hurricane with winds of 137 kilometers per hour (85 miles per hour) to $130 million for a category 5 hurricane with winds of 265 kilometers per hour (165 miles per hour). Based on these figures, we estimate expected annual public costs of $2.3 million. These cost estimates: (1) provide useful guidance for anticipating the magnitude of the federal, state, and local expenditures that would be required for the array of possible hurricanes that could affect that jurisdiction; (2) allow policy makers to assess the implications of alternative federal and state policies for providing public assistance to jurisdictions that experience hurricane damage; and (3) provide information needed to develop a contingency fund or other financial mechanism for assuring that the community has sufficient funds available to meet its obligations. KEY WORDS: Hurricane; Public costs; Local government; Disaster recovery; Disaster response; Florida; Stafford Act     

Water Quality Improvement Policies: Lessons Learned from the Implementation of Proposition O in Los Angeles,California

This article evaluates the implementation of Proposition O, a stormwater cleanup measure, in Los Angeles, California. The measure was intended to create new funding to help the city comply with the Total Maximum Daily Load requirements under the federal Clean Water Act. Funding water quality objectives through a bond measure was necessary because the city had insufficient revenues to deploy new projects in its budget. The bond initiative required a supermajority vote (two-thirds of the voters), hence the public had to be convinced that such funding both was necessary and would be effective. The bond act language included project solicitation from the public, as well as multiple benefit objectives. Accordingly, nonprofit organizations mobilized to present projects that included creating new parks, using schoolyards for flood control and groundwater recharge, and replacing parking lots with permeable surfaces, among others. Yet few, if any, of these projects were retained for funding, as the city itself also had a list of priorities and higher technical expertise in justifying them as delivering water quality improvements. Our case study of the implementation of Proposition O points to the potentially different priorities for the renovation of urban infrastructure that are held by nonprofit organizations and city agencies and the importance of structuring public processes clearly so that there are no misimpressions about funding and implementation responsibilities that can lead to disillusionment with government, especially under conditions of fiscal constraints.     

PLANNING FOR DROUGHT: THE ROLE OF STATE GOVERNMENT1

ABSTRACT: Although droughts are a frequent occurrence over much of the United States, response by state and federal government has been ineffective and poorly coordinated. Recently, several states have recognized the value of drought emergency planning and have developed plans to assist them in responding more effectively to prolonged periods of water shortage. These states have created an organizational structure to coordinate the assessment and response activities of state and federal agencies. Each state's drought response plan is unique since each state's water supply and management problems, and their consequent impacts, are unique. The drought response plans developed by Colorado, South Dakota and New York are reviewed here in detail. We recommend that other states affected by frequent and severe water shortages also develop drought emergency plans. These plans will enhance state government's ability to implement effective measures in a timely manner and, ultimately, may provide added incentive for the federal government to develop the national drought response plan called for by the General Accounting Office in 1979.     

A WATERSHED APPROACH TO ECOSYSTEM MONITORING IN DENALI NATIONAL PARK AND PRESERVE,ALASKA1

ABSTRACT: The National Park Service and the National Biological Service initiated research in Denali National Park and Preserve, a 2.4 million-hectare park in southcentral Alaska, to develop ecological monitoring protocols for national parks in the Arctic/Subarctic biogeographic area. We are focusing pilot studies on design questions, on scaling issues and regionalization, ecosystem structure and function, indicator selection and evaluation, and monitoring technologies. Rock Creek, a headwater stream near Denali headquarters, is the ecological scale for initial testing of a watershed ecosystem approach. Our conceptual model embraces principles of the hydrological cycle, hypotheses of global climate change, and biological interactions of organisms occupying intermediate, but poorly studied, positions in Alaskan food webs. The field approach includes hydrological and depositional considerations and a suite of integrated measures linking key aquatic and terrestrial biota, environmental variables, or defined ecological processes, in order to establish ecological conditions and detect, track, and understand mechanisms of environmental change. Our sampling activities include corresponding measures of physical, chemical, and biological attributes in four Rock Creek habitats believed characteristic of the greater system diversity of Denali. This paper gives examples of data sets, program integration and scaling, and research needs.     

Who’s in Charge: Role Clarity in a Midwestern Watershed Group

Studies of collaborative watershed groups show that effective leadership is an important factor for success. This research uses data from in-depth interviews and meeting observation to qualitatively examine leadership in a Midwestern collaborative watershed group operating with government funding. One major finding was a lack of role definition for volunteer steering-committee members. Lack of role clarity and decision-making processes led to confusion regarding project management authority among the group, paid project staff members, and agency personnel. Given the important role of government grants for funding projects to protect water quality, this study offers insight into leadership issues that groups with Clean Water Act Section 319 (h) funds may face and suggestions on how to resolve them.     

GIS‐BASED WATER QUALITY MODELING IN THE SANDUSKY WATERSHED,OHIO, USA1

ABSTRACT: This study focused on the Sandusky Watershed (SW) in Ohio, located within the Great Lakes Basin, with emphasis on two of its subwatersheds, namely Honey Creek (HC) and Rock Creek (RC). The goal was to assess the capabilities of the Soil and Water Assessment Tool (SWAT) to simulate suspended sediment (SS), phosphorus (P) and nitrogen (N) yield in the SW that contribute major sediment and nutrient loads into Lake Erie. The model was calibrated using water flow and water quality parameters for water years 1998 to 1999 and validated model simulations covering the period of water years 2000 to 2001 for monthly conditions. The validation of SS showed correlation coefficients of 0.29 (SW), 0.75 (HC) and 0.69 (RC). Correlation coefficients for P were 0.68 (SW), 0.78 (HC) and 0.37 (RC); for N0₂‐N 0.84 (HC) and 0.38 (RC); for N0₃‐N 0.27 (HC) and 0.76 (RC); for NH₃‐N 0.57 (SW), 0.49 (HC), and 0.13 (RC). In addition, mean errors, root mean square errors, Nash‐Sutcliffe coefficients, and graphs were used to compare simulated to measured data. Simulation success was variable with poor and good simulations, but in most cases, simulated water quality values followed the trend of measured data except for extreme (or intense) rainfall/runoff events. Reviews of 17 applications indicated that the SWAT is suitable for long term continuous simulations but not for storm events. A spatially distributed modeling approach generated maps showing the spatial distribution of SS, P, and N for each simulation element across the Sandusky Watershed.     

DESIGN AND IMPACT ANALYSIS FOR DIVERSION AT COAL CREEK MINE1

A diversion system has been designed to carry the flow from East Fork of Coal Creek around the area proposed for mining at Thunder Basin Coal Company's (TBCC) Coal Creek mine in Campbell County, Wyoming. This paper describes the field and analysis procedures necessary to prepare the diversion design and impact evaluation, and the innovative concepts developed for the diversion system design to minimize impacts on downstream channel stability. Under the proposed diversion system design, water from the East Basin of Coal Creek will be diverted at two locations. At one location, flow will be impounded by a small dam and decanted by a pump through a pipeline into East Fork at the location of the second diversion. At this location, a training dike will be placed across the stream channel to divert flows into a diversion channel. Gravity flow along the diversion channel will deliver water to a playa area which will be converted into a detention basin by placing a small dam across its southern end. Flows up to the magnitude of the 24-hour 2-year peak flow will be passed directly through the detention basin into Middle Fork with negligible attenuation of flow rates. For less frequent events, water will be stored in the detention basin in order to prevent velocities in Lower Middle Fork from exceeding the maximum permissible velocity above which scouring may occur. Evaporation and seepage losses from the diversion system were estimated to be small and should be more than offset by the addition of water from the playa drainage basin into the Coal Creek drainage. Velocities predicted for the Lower Middle Fork after-the diversion is constructed are expected to be low enough that significant erosion of the channel is not expected to occur.     

DESIGN AND IMPLEMENTATION OF A COOPERATIVE WATER QUALITY MONITORING PROGRAM IN COLORADO'S BIG THOMPSON WATERSHED1

ABSTRACT: In 1996, the Big Thompson Watershed Forum (BTWF) was formed “to assess and protect the quality of water” in the Big Thompson Watershed in northern Colorado. However, until 1999, water quality monitoring in the watershed was performed by many state, local, and federal agencies with no coordination among programs and with few efforts toward efficiency, data comparability, or information exchange. To better meet the needs of its stakeholders, the BTWF since 1999 has been actively pursuing the design and implementation of a cooperative water quality monitoring program. The program design involved consensus building among the funding participants, primarily drinking water providers. The final design included 38 parameters to be sampled 15 times per year at 24 stream and canal locations plus two reservoirs. Although the collaborative consensus based approach has been successful for the BTWF, this approach has its drawbacks; most notable among these are the time and labor this approach requires. Also, the BTWF struggled with achieving equal representation of all interests, since those agencies that provided funding had the greatest voice in the final product. While a collaborative approach may not always be best for monitoring program design, it should be appropriate for many watershed organizations that face the common problem of severe financial constraints.     

Cutting the cake: Supporting environmental fund allocation decisions

This paper describes a decision support model for allocating financial resources amongst multiple user groups in environmental management problems. The model is based on the multiple criteria analysis (MCA) method of compromise programming. It was used to inform the allocation of Natural Heritage Trust funds across 14 regions in Queensland, Australia. The model targets funding to those regions with greater natural resource management needs. Need is determined by 19 weighted criteria relating to natural resource assets and threats. The model was accepted by the Australian Government, Queensland Government and regional groups as an appropriate means for allocating program funds; first in 2005 and then again, with improvements, in 2007. This paper shows that an MCA model can improve the transparency, auditability and acceptance of allocation decisions which would otherwise be heavily politicised.     

Reducing Nonpoint Source Pollution Through Collaboration: Policies and Programs Across the U.S. States

Nonpoint source (NPS) pollution has emerged as the largest threat to water quality in the United States, influencing policy makers and resource managers to direct more attention toward NPS prevention and remediation. In response, the United States Environmental Protection Agency (USEPA) spent more than $204 million in fiscal year (FY) 2006 on the Clean Water Act’s Section 319 program to combat NPS pollution, much of it on the development and implementation of watershed-based plans. State governments have also increasingly allocated financial and technical resources to collaborative watershed efforts within their own borders to fight NPS pollution. With increased collaboration among the federal government, states, and citizens to combat NPS pollution, more information is needed to understand how public resources are being used, by whom, and for what, and what policy changes might improve effectiveness. Analysis from a 50-state study suggests that, in addition to the average 35% of all Section 319 funds per state that are passed on to collaborative watershed groups, 35 states have provided financial assistance beyond Section 319 funding to support collaborative watershed initiatives. State programs frequently provide technical assistance and training, in addition to financial resources, to encourage collaborative partnerships. Such assistance is typically granted in exchange for requirements to generate a watershed action plan and/or follow a mutually agreed upon work plan to address NPS pollution. Program managers indicated a need for greater fiscal resources and flexibility to achieve water quality goals.     

Targeted Application of Seasonal Load Duration Curves Using Multivariate Analysis in Two Watersheds Flowing Into Lake Houston1

Teague, Aarin, Philip B. Bedient, and Birnur Guven, 2011. Targeted Application of Seasonal Load Duration Curves Using Multivariate Analysis in Two Watersheds Flowing Into Lake Houston. Journal of the American Water Resources Association (JAWRA) 47(3):620‐634. DOI: 10.1111/j.1752‐1688.2011.00529.x Abstract: Water quality is a problem in Lake Houston, the primary source of drinking water for the City of Houston, Texas, due to pollutant loads coming from the influent watersheds, including Spring Creek and Cypress Creek. Statistical analysis of the historic water quality data was developed to understand the source characterization and seasonality of the watershed. Multivariate analysis including principal component, cluster, and discriminant analysis provided a custom seasonal assessment of the watersheds so that loading curves may be targeted for season specific pollutant source characterization. The load duration curves have been analyzed using data collected by the U.S. Geologic Survey with corresponding City of Houston water quality data at the sites to characterize the behavior of the pollutant sources and watersheds. Custom seasons were determined for Spring Creek and Cypress Creek watersheds and pollutant source characterization compared between the seasons and watersheds.     

EFFECTS OF LOMA PRIETA EARTHQUAKE ON SURFACE WATERS IN WADDELL VALLEY1

ABSTRACT: Waddell Creek is a perennial stream near Santa Cruz, California, which discharges into the Pacific Ocean about 38 km from the epicenter of the Loma Prieta earthquake (October 17, 1989, M 7.1). The earthquake caused no significant changes or damage to structures or surface features in the area, but was followed by an order of magnitude transient increase in discharge of Waddell Creek and nearby springs. The transients approximate a step rise followed by an exponential recession with time constants of from 37 to 59 days. The flow recession pattern of Waddell Creek was obscured by heavy rains after about 50 days; however, the springs maintained an exponential recession with minimal rain interference for periods of several time constants, then abruptly ceased flowing. A comparison of the pre-quake and post-quake chemical signature of one of the springs shows only minor changes in water chemistry indicating a common source for pre- and post-quake waters. Increased permeability of the subsurface ground material appears to be the most probable cause of the hydrologic changes. Post-seismic reduction of permeability has not been observed or inferred.