A Preliminary Study on Expanding and Financing State Water Development

The effects of recent energy price increases, domestic inflation rates, financial market fluctuations, and changing public attitudes toward federally sponsored water resource development and management have brought economic and financial consideratiosn to the forefront of Western water management issues. Recently enacted federal policies place increased responsibility on the states and localities for the development and management of their water resources. A response common to many of the western states has been to stengthen traditional, and often small, water financing and development programs. In creating and sustaining such a posture, however, state governments must address the important questions pertaining to the economic and financial impact of greater state involvement, the distributional impacts of state taxing and lending programs, and the state social goals relating to such managerial involvement. The traditional and recently expanded water development programs of the State of Utah have been reviewed in the light of such management issues. The demand for state financing of water projects was addressed through an examination of economic indicators and an inventory of potential projects. State options for obtaining capital financing also were examined. This review indicates taht increased financing activity and the potential for increased concentration of water development project benefits to specific social groups have created a need for greater clarity in the legislative mandate and greater accounting and visibility of water project impacts through the use of improved economic and social evalution procedures. Moreover, in the absence of such safeguards, the continued investment of state funds might be considered premature and not always in the best interest of the state\u27s residents

Hydrologic Inventory of the Great Salt Lake Desert Area

The Great Salt Lake Desert, located in the southwest corner of the State of Utah is a very dry region with sparse population and relatively small scattered areas of development. Since only a meager amount of hydrologic data has been collected and compiled for this relatively undeveloped area, the inventory presented herein is but a general appraisal of hydrologic conditions. Because of the small amount of development that has taken place and the general lack of hydrologic data, a water budget analysis is included for the Tooele Valley only

Organizational Alternatives to Achieve Greater Uniformity in State-wide Water Rights Management in Utah

In the distribution of water among users in the state of Utah there is lack of organizational uniformity. On some rivers, the state engineer is assisted by river sommissioners who have been appointed to measure and monitor water deliveries. On other rivers there are no comissioners; problems and disputes must be settled on a case by case basis by the state engineer. The responsibilities, arrangements, salaries, and methods of payment for commissioners vary from basin to basin. A more unifed distribution organization composed of state-employed water sommissioners would have several advantages over the existing system of commissioners employed by local water users. Advantages would include the development and retantion of a higher level of expertise, improved record keeping and reporting, more complete geographical coverage of river systems, and better balance of commissioner work loads. These advantages would come at a higher cost, but the impact on water users could be mitigated by dividing the cost of the system between the users and the general public in a dual financing arrangement

A Study of Feasibility of State Water User Fees for Financing Water Development

Water user fees imposed by a state on major water uses is a possible new alternative source of state water development funds. A fee, similar to an excise tax, might be charged for the use of the water resource per se, which in a number of states is declared to be the property of the public of the state. States generally have not employed such fees as a source of operating funds for water agencies or of development capital. Only in the area of water based recreation-fishing, coating, camping, etc.—have states extensively employed user fees. The revenues from these fees, however, are used only to defray management and operating expenses associated with these activities. The implementation of user-fee financing would result in some shifts of financing burden connected with water programs from the general taxpayers of the state to specific water users. Although this approach has not been utilized by states to a significant extent, the “user pay” principle is well established in economic theory. The theory indicated that user fees would be an economically more efficient and equitable source for financing water development than general tax revenues. In the design of fee structures for major water uses, several characteristics of fees are appropriate to consider. Five which were identified in this study are as follows: equity, economic efficiency, allocational effectiveness, administrative simplicity, and revenue generating potential. These were used to evaluate different structures for extracting fees from the user. These rate design considerations may relate only indirectly to a state system of user fees since the state fees envisioned in this study in many cases may be only an add-on or surcharge to a basic charge imposed by a local entity, such as a municipality or an irrigation district. Revenue generating potential, the last of the five characteristics listed, was of primary interest in this study. Estimates of revenue potential for four major water uses—irrigation, municipal, industrial, and recreations—were made with a formula developed in this study for this purpose. Gross estimates of potential from public supply and irrigation uses were made for several selected states, and somewhat more detailed estimates were made for the four major uses in Utah. The calculations indicated that substantial amounts of funds could be generated with only modest increases in current charges. A preliminary assessment of legal and administrative implications of implementing water user fees in the State of Utah was made in this study. The results indicated that some fee alternatives probably could be implemented by administrative action; others would require legislative approval. Constitutional issues related to some alternatives would have to be resolved by the state supreme court. New uses associated with developing Utah’s vast energy resources appear to offer a particularly promising prospect for instituting a user fee program with minimal legal complications

Development of Regional Supply Functions and a Least-Cost Model for Allocating Water Resources in Utah: A Parametric Linear Programming Approach

The development and allocation of the water resourcse within a state require water planners to prepare plans far in advance of the actual time new facilities are required. It is not easy to identify and evaluate all the possible alternatives for providing water which incorporate broad objectives such as economic efficiency, social welfare, regional development, recreation benefits, and conservation of environment. Water resources development entails the modification of a natural hydrologic system to better meet man\u27s needs. The interrelationships among elements of the hydrologic system to better meet man\u27s needs. The interrelationships among elements of the hydrologic system are relatively simple in comparison to the social, legal, economic, and institutional interdependencies involved. The relationships are so complex as to require that planning of water resource development be accomplished on a systems basis. It has become apparent that water resource planning must consider mass transfer of water encompassing areas which have potential for economic growth competing with other areas already highly developed economically. The wisest political decisions and the greatest benefit to the public will result if a method is used to explore the probable consequences of alternative water resources development and management policies and plans. The objective of this study is to extend the capability of systems analysis and operations research to the problem of interregional planning of water resources allocation for the State of Utah. The hydrologic characteristics and cost of water in each of the ten hydrologic study units of the state were determined. Hydrolgoci data from hydrologic inventories and estimates from the Utah Division of Water Resources were used to determine availability, reservoir storage-draft relationships, evaporation loss from reservoirs, agricultural use return flow, and municipal and industrial use return flow. Cost data were developed for storage facilities, diversion and canal works, artificial recharge facilties, treatment of waste water, and treatment of municipal supply. Supply functions for water in each of the ten hydrologic study units of the state were determined. Two sets of functions were developed--one for agricultural use and one for municipal and industrical use. Parametric linear programming was employed to develop a function map of the shadow price (marginal cost) of water for each of the two uses. The shadow price of imported water (value) to each of the study units was also determined to show the possible economic consequences of inter-basin transfers. In general, imported water was of little or no value if water presently being evaporated from Great Salt Lake is available for diversion upstream. A statewide model was developed to determine a least-cost allocation of water resources to meet projected requirements. This linear programming allocation model was developed subject to constraints such as hydrologic characteristics, limits on inter-basin transfers, limits on artificial groundwater recharge, and existing water requirements. Parametric programming was utilized to determine the impact of changing availability which reflects policies regarding inflow requirements of the Great Salt Lake and interstate agreemetns, increased agricultural use and municiapl and industrical use which reflects population increases projected for the future and changing groundwater availability which reflects legal constraints. The primary facotr affecting inter-basin transfer of Colorado River water is the degree to which evaporation from Great Salt Lake is reduced

Flood Damage Mitigation in Utah

Utah is subjected to flash flooding in mountain canyons, mudflows and shallow water flooding on lowlands at the canyon outlets, storm water flooding after thunderstorms in urban areas, and prolonged periods of inundation in certain lowland areas during snowmelt periods. In response to these problems, individuals are making private land use and flood proofing decisions, larger communities have storm water collection programs, three federal agencies are involved in structural flood control, and the Federal Emergency management Agency is managing a National Flood Insurance Program designed to promote community floodplain management efforts. A framework was deceloped of the dynamically interactive feedback process through whic people at various levels and from various prospectives seek the benefits of flood plain occupancy, experience floods, and respond by changin their occupancy or the flows. That framework than became the background for identifying what state government should do in Utah to correct unsatisfactory aspects o the existing flood hazard and counter measures. The data used in the analysis included magnitudes of major historical snowfall and precipitation events, estimates of 100-year flows for all 105 gaged locations with more than 20 years of record, envelope curves of 100-year flow versus drainage area for Utah basins, descriptions of the major historical floods (by order according to amount of damage 1. Salt Lake City canyons 1952 $6,74,000; 2. Ogden 1979$1,000,000; 3. Virgin River 1966 $962,000; 4. Sheep Creek (Daggett County) 1965$802,000), descriptions of the sturctural flood control projects built or being planned in Utah by the Corps of Engineers, Soil Conservation Service, and Water and Power Resources Service, data with respect to participation in the national flood insurance program of Utah\u27s 251 communitities, a survey of the flood hazard in 32 of those communitites randomly selected from a stratified sample, and a detailed evaluation of the situations in 7 of them. The study found that the flood hazard in Utah is much more concentrated in smalled basins than is so for other parts of the country and that the major problem lies at the base of the mountains where major damages are regularly being caused by flows at mountin hollows too small for hazard areas to have been mapped through the National Flood Insurance Program. Better methodology needs to be developed and applied for delinating hazard areas from mudflows and shallow water flooding on alluvial fans and other lowlands at the mountain base. Attention needs to be given to the effects of irrigation canals and bridges on the risk. Designs need to be developed that work with nature in dispersing the flood water and recharging much of it to underground aquifers instead rather than against nature in concentrating the flows in a downstream direction. State actions recommended include 1) providing a continuing forum for interaction among federal agencies and local communities, 2) providing technical support for local communitites including review of proposed designs for safety, 3) developing structural and flood proofing designs that will be effective in Utah conditions, and 4) interacting with federal agencies on behalf of the local communities

Impediments to Effective Interactions Between Multipurpose Water Districts and Other Governmental Institutions in Urbanizing Areas

Water institutions are highly diffused throughout society. These institutions interact with one another in various ways. As water needs and services expand, collaborative and cooperative arrangements are commonly sought as a means of meeting common goals of providing a safe, dependable adn least cost water supply to particular constituencies. Of the many different institutions involved in the development, managment, distribution, and use of water, perhaps the most significant in terms of extensive interactions with other institutions is the kind that is typified by Water Conservancy Districts and Metropolitan Water Districts in Utah. The statutory and operating framework of counterpart organizations in Arizona, Colorado, Nebraska, Oregon, and South Dakota are compared in this report. Significant differences in procedures for creation and termination, selection of officers, powers and legal rights, opportunity for input to policy formulation, sources of financiing, planning responsibility, and coordination are identified. Interstate comparisons provide the backdrop for more specific examination of the interactions of districts in Utah with other organizations and agencies. The results indicate that districts have tended to embrace large scale projects as solutions to projected water shortages. The continuing and long term financial obligation constrains the districts flexibility to adjust to alternative supply options that may become visible to retail users as demand patterns change during the drawn out construction schedules of large projects. Because the Conneville Unit of the Central Utah Project is presently engaged in a large and active investigative and construction program, and is negotiating water purchase contracts, examples of some of the kinds of impediments to effective institutional interaction were more readily identified in that region by those interviewed. In situations where institutional differences occur, their mediation could be more readily effected if districts were more directly linked to general purpose government and particularly to state oversight. State government might promote more harmonious coordination of district operations by inviting periodic full and open appraisal of district plans and policies in a search for mid-course corrections that might better serve the public interest without abrogating contractual commitments

Management of Groundwater Recharge Areas in the Mouth of Weber Canyon

Proper management of surface and groundwater resources is important for their prolonged and a beneficial use. Within the Weber Delta area there has existed a continual decline in the piezometric surface of the deep confined aquifer over the last 40 years. This decline ranges from approximately 20 feet along the eastern shore of the Great Salt Lake to 50 feet along in the vicinity of Hill Air Force Base. Declines in the piezometric surface are undesirable because of the increased well installation costs, increased pumping costs, decreased aquifer storage, increased risk of salt water intrusion, and the possibility of land subsidence. Declines in the piezometric surface can be prevented or reduced by utilizing artificial groundwater recharge. The purpose of this study was to develop and operate a basin groundwater model with stochastic recharge inputs to determine the feasibility of utilizing available Weber River water for the improvement of the groundwater availability. This was accomplished by preparing auxiliary computer models which generated statistically similar river flows from which river water rights were subtracted. The feasibility of utilizing this type of recharge input was examined by comparing the economic benefit gained by reducing area wide pumping lifts through artificial recharge with the costs of the recharge operations. Institutions for implementing a recharge program were examined. Through this process a greater understanding of the geohydrologic conditions of the area was obtained. Piezometric surface contour maps, geologic profiles, calibrated values for geologic and hydrologic variables, as well as system response to change were quantified