CAP and the Water-Energy Nexus: An Interview With David Modeer - Volume 5 Issue 6
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Volume 5 Issue 6 June 2014
CAP and the Water-Energy Nexus:
An Interview With David Modeer
Introducing the Irrigation Leader
Products & Services Guide
By Kris Polly necessarily recommend or endorse the
advertiser, but they do represent points of
S
ince our debut issue of Irrigation contact that can, if contacted, share their
Leader magazine in October experience with the product or service.
2010, we have followed a simple “This whole business runs on gossip,”
rule with regard to advertising: We Tom Davis, general manager of the
only advertise those products and Yuma County Water Users Association
services that are already being used once told me. By that, he meant that
by an irrigation district or water- the irrigation and water-providing
providing entity. This simple rule business is a close-knit group of people
assures our readers that our advertisers who rely heavily on the opinions and
offer quality products and services and recommendations of their peers. That
lends credibility to the magazine. Our has certainly been my observation from
readers appreciate this standard, and working western water issues for over
our advertisers have greatly benefited. 20 years. The Irrigation Leader Products
We have learned that it is important for & Services Guide provides an easily
irrigation districts and water-providing accessible, visual listing of those products and
entities to know that others are successfully using a services that are used by irrigation districts and water-
product or service they are considering purchasing. providing entities today. Please review the new guide. We
Given the limited advertising space in Irrigation Leader hope you will find it useful.
magazine, we have created an online Irrigation Leader
Products & Services Guide to specifically provide additional Kris Polly is editor-in-chief of Irrigation Leader magazine
space for advertisers. You will find this guide posted on and president of Water Strategies LLC, a government relations
our website at www.WaterAndPowerReport.com. Each firm he began in February 2009 for the purpose of representing
listing in the guide allows advertisers space to provide and guiding water, power, and agricultural entities in their
a brief summary of their product or service and, most dealings with Congress, the Bureau of Reclamation, and
importantly, a list of those irrigation districts and water- other federal government agencies. He may be contacted at
providing entities with whom they have done business. Kris.Polly@waterstrategies.com.
It is important to note that those entities listed do not
The Water and Power Report
www.WaterAndPowerReport.com
The Water and Power Report is the one-stop
aggregate news site for water and power issues in
the 17 western states. Sign up for the free “Daily”
service to receive e-mail notice of the top headlines
and press releases each business day.
2 Irrigation Leader
JUNE 2014 C O N T E N T S
2 Introducing the Irrigation Leader
Products & Services Guide
Volume 5 Issue 6 By Kris Polly
Irrigation Leader is published 10 times a year
with combined issues for July/August and
4 CAP and the Water-Energy Nexus:
November/December by: An Interview With David Modeer
Water Strategies LLC
P.O. Box 100576
Arlington, VA 22210 10 Working to Protect State-Granted
Staff:
Water Rights: An Interview With
Kris Polly, Editor-in-Chief Congressman Paul Gosar
John Crotty, Senior Writer
Robin Pursley, Graphic Designer
Capital Copyediting LLC, Copyeditor 14 The Challenge of NPDES Permits for
SUBMISSIONS:
Herbicide Applications
Irrigation Leader welcomes manuscript, By Kacie Thrift
photography, and art submissions. However, the
right to edit or deny publishing submissions is
reserved. Submissions are returned only upon DISTRICT FOCUS
request.
ADVERTISING: 16 Maricopa Water District
Irrigation Leader accepts one-quarter, By Glen Vortherms
half-page, and full-page ads. For more
information on rates and placement,
please contact Kris Polly at (703) 517-3962 or
Irrigation.Leader@waterstrategies.com. MANAGER’S PROFILE
CIRCULATION:
Irrigation Leader is distributed to irrigation district
22 Mike Urton
managers and boards of directors in the 17 western
states, Bureau of Reclamation officials, members
of Congress and committee staff, and advertising RECLAMATION PROFILE
sponsors. For address corrections or additions,
please contact our office at
Irrigation.Leader@waterstrategies.com.
24 Deputy Commissioner Jennifer Gimbel
Copyright © 2014 Water Strategies LLC. Irrigation
Leader relies on the excellent contributions of a THE INNOVATORS
variety of natural resources professionals who
provide content for the magazine. However, the
views and opinions expressed by these contributors
28 XRI: Facilitating Data-Driven Water
are solely those of the original contributor and do Management
not necessarily represent or reflect the policies or
positions of Irrigation Leader magazine, its editors,
or Water Strategies LLC. The acceptance and use of
32 Concrete Cloth: The Fabric of Water
advertisements in Irrigation Leader do not constitute Infrastructure
a representation or warranty by Water Strategies LLC
or Irrigation Leader magazine regarding the products,
services, claims, or companies advertised. 34 Flexible Water Control Solutions:
Rubber Dams From Yooil
COVER: Photo of the Central Arizona
Project and Central Arizona Water
Conservation District (CAWCD) 38 CLASSIFIED LISTINGS
General Manager David Modeer.
Photos provided by the CAWCD.
Irrigation Leader 3
CAP and the Water-Energy Nexus:
An Interview With
David Modeer
I n Arizona, the delivery of water is
inextricably linked to the production of
energy. For instance, the growers and
residents of central-south Arizona would pay
much more for their allotment of Colorado
River water without the generation of energy
by the coal-fired Navajo Generating Station
(NGS). Guiding that water delivery—via
the monumental Central Arizona Project
(CAP)—is David Modeer, who joined the
Central Arizona Water Conservation District
(CAWCD) as general manager overseeing all
CAP operations in January 2009.
David brings a wealth of water management
experience to his work. Prior to his arrival at
CAP, he had served as director of water services
for the City of Phoenix and director of water in
Tucson. David also spent 26 years at American
Water Works, Inc., in a variety of managerial
positions, including vice president of operations
for both
the Pennsylvania-American and Western
Region divisions. David served six years on
the publicly elected board of directors of the
CAWCD prior to his selection as general
manager.
Irrigation Leader’s editor-in-chief, Kris
Polly, spoke with David about the project’s top
issues, the impacts of CAP water on the Arizona
economy, and water conservation.
An aerial view of the Central Arizona Project
4 Irrigation Leader
Kris Polly: For our non-Arizonan
readers, please provide a brief description
of CAP.
David Modeer: CAP was developed
decades ago to make use of a large part
of Arizona’s apportionment of Colorado
River water. It was accomplished
by congressional action in 1968.
Construction began in the 1970s, but
stopped for a while when the Carter
administration wouldn’t fund it. Another
congressional action got it back on track.
The project was completed in 1993, and
it now stretches from the Colorado River
near Lake Havasu to south of the city of
Tucson. We
first delivered water in 1985 to some of
the agricultural districts west of Phoenix.
It is a large project: 336 miles long,
pushing water 3,000 feet uphill and
delivering 1.6 million acre-feet per
year of Arizona’s 2.8 million acre-
foot appointment of the Colorado
River. There are 14 pump stations and
50 check stations to control the speed
at which water flows. CAP has close David Modeer at Wilmer Power Plant.
to 90 wholesale customers—cities,
industries, agriculture, and tribes. About
47 percent of our supplies go toward fulfilling Indian agricultural users will lose a majority of their access to
water rights settlements. Our customer base includes Colorado River water . . . and potentially all access in the
16 irrigation districts. At this time, a majority of our water next three to five years depending on when the shortage is
is being utilized by non-Indian agriculture. called. Growers have invested a lot of money in preparing
their fields to meet state efficiency requirements. Loss
Kris Polly: What are CAP’s top issues? of CAP water is going to be a burden on agriculture,
impacting operations, crop production, and the number of
David Modeer: Our top issues are significant: plantings.
environmental regulations as they relate to energy
production. More than 90 percent of our energy is Kris Polly: With respect to the shortage, how will the
supplied by NGS, a coal-fired power plant in the Navajo irrigators be impacted—what is the worst-case scenario?
Nation. It has been under regulatory review for almost
five years. We are expecting a ruling on best available David Modeer: In the worst-case scenario, irrigators
retrofit technology and regulations on regional haze will be impacted as early as 2017, with a reduction of
issues issued by the EPA [U.S. Environmental Protection 300,000 acre-feet off their current utilization (600,000 or
Agency]. It will have a significant cost impact on our 700,000 acre-feet of water). Through the Arizona Native
users, because these regulations will have a significant American water rights settlement agreement, irrigators
impact on our ability to pump and deliver water. have an agricultural pool—rights to use 400,000 acre-feet
The second major issue is the impending shortage of discounted-rate CAP water each year. The amount of
on the Colorado River in 2016 or 2017. If a shortage is water in the ag pool diminishes over time, until it goes
declared, the first cutbacks will hit non-Indian agriculture. away in 2035. A worst-case shortage could eliminate that
If a second-stage shortage on the river is declared, pool completely in the next few years.
Irrigation Leader 5
Lake Pleasant with New Waddell Dam in the foreground.
Kris Polly: How will NGS impact the price of water If the EPA approves the Technical Workgroup
for irrigators? Agreement worked out by a multiple agencies (the
Department of the Interior, CAP, the Navajo Nation and
David Modeer: There are several ways. First of all, the Gila River Indian Community, and the other electrical
we have already seen some price increases as part of customers), it will become the framework for the EPA’s
this regulatory process. NGS owners executed a new rulemaking. Under it, we believe the plant will continue
contract for cooling water with the federal government to operate through 2044. Currently, there is a NEPA
last year. That increased the price of water and the cost [National Environmental Policy Act] process that must be
of electricity. New 25‑year leases with the Navajo Nation completed in the next three years before the secretary of
were executed last year and are currently impacting prices. the interior can approve the new lease. Once that is done,
Those costs are passed on to our consumers. we will make what amounts to a balloon payment with
At the end of 2019, the current contracts for the some long-term debt.
operation of NGS could go away, and the plant would Were NGS to close, we anticipate that our energy
shut down. Three of the owners, along with CAP and expense will increase by 200 percent. I am certain that
the Bureau of Reclamation, have indicated their desire to agriculture would be unable to use the more expensive
continue operating the plant. Major users—Los Angeles CAP water.
Department of Water and Power and Nevada Energy—
will be exiting. At the end of 2019, they will not extend Kris Polly: How many people are employed at the
their contracts, which will require shutting down one unit plant, and what is the source of the coal?
[of the three at the generating station]. This will increase
operating costs. The unit price of electricity for remaining David Modeer: At NGS, there are approximately
users—CAP, Salt River Project, Arizona Public Service 520 employees; 85 percent of those are Navajo. NGS
Company, and Tucson Electric Power—will go up about represents upward of 50 percent of Navajo Nation
8 percent in 2020. Customers will absorb the increases. revenues, both from coal royalties and the taxes paid by
And further price increases will come. owners of the plant. The Hopi Nation has stated that
6 Irrigation Leader
Navajo Generating Station.
it receives about 80 percent of its revenues from NGS year from excess power sales, which is used to offset
operations. CAP’s $55 million annual repayment obligation. If NGS
CAP, in conjunction with Arizona State University, did closes, CAP would also have to make up that lost revenue.
a study that came out in early spring of this year on the That’s one reason why any alternative power source will be
economic impacts of CAP. In 2010, the water delivered by significantly more expensive.
CAP was foundational to about 50 percent of Arizona’s But we know that there are risks to NGS, and we are
gross state product (state-wide economic activity). So the engaged internally in a study of alternatives, including
fate of NGS will not just impact water coming out of a renewables, contracts with other power providers, and
faucet or onto a field, but the entire economy of the state. building our own facilities. We are studying and weighing
options in preparation for 2019, and depending on what
Kris Polly: Has CAP looked into other alternatives if the regulatory rule is, we’ll see what the other owners are
NGS is decommissioned? going to do.
David Modeer: That is a complex question. My quick Kris Polly: What can you tell us about CAP’s
answer is yes. But the reality of the answer is that there is innovative water conservation program?
no replacement for NGS.
NGS is a fully capitalized plant; therefore, the cost David Modeer: CAP employs two levels of
of the power that it produces is consistently below the conservation. The first type arises from working
market. As part of its agreement with NGS, CAP has cooperatively with industries, towns, and cities to reduce
rights to much more power than it needs to pump its water use. Arizona uses no more water now than it did
water. The intent is for CAP, working with the Western in the 1950s, yet the state has more than doubled its
Power Administration, to market the excess power. population.
The revenues generated by that go into our repayment And being a wholesaler, CAP is concerned about the
obligation for the construction of the project. CAP longevity and consistency of flows in the Colorado. We are
normally receives from $23 million to $26 million per involved with a number of projects and studies to ensure
Irrigation Leader 7
Superstition Mountains groundwater
recharge site.
that during periods of drought, we can
lessen negative impacts and stem the
continuing decline in the levels of Lake
Mead. We are doing a pilot study with
irrigators in the Yuma Mesa Irrigation
District on the economic and crop
impacts of fallowing land in order to
leave water in Lake Mead. We are also
developing plans to leave water in Lake
Mead as “intentionally created surplus”
through agreements with Nevada and
California. All of this is to help maintain
higher levels in Lake Mead so it does not
fall such that it creates legal actions over
operations on the Colorado.
We’re also looking at working with
the Bureau of Reclamation to try to
operate the Yuma Desalting Plant to
save 100,000 acre-feet a year in Lake
Mead. The desalting plant has not been
operating on a full-time basis since it was
built more than 20 years ago. We think Salt River Project turnout and interconnect.
that for full-time operation, there will
have to be a public-private partnership to
upgrade the plant. We are also looking at
other desalting activities in groundwater
basins where we have large volumes of
brackish water. There has been some
progress working with other states in
stemming the decline in Lake Mead.
Hassayampa pumping plant.
8 Irrigation Leader
ADVERTISEMENT
Working to Protect State-Granted Water Rights:
An Interview With Congressman Paul Gosar
C
ongressman Paul A. Gosar,
DDS, is serving his second
term in Congress as the
representative from Arizona’s Fourth
Congressional District. Congressman
Gosar is a member of the Natural
Resources Committee and the
Oversight and Government Reform
Committee. The congressman has been
an active voice on water rights issues,
including recent proposals by the U.S.
Environmental Protection Agency
(EPA) and the U.S. Forest Service,
and is a cosponsor of H.R. 3189, the
Water Rights Protection Act. Prior to
his election to office in 2010, he owned
his own dental practice in Flagstaff for
25 years.
As an advocate for federal policies,
legislation, and regulations that
promote the protection, management,
development, and beneficial use of
water resources, the National Water
Resources Association (NWRA) has been
actively working to address concerns
about these recent agency proposals.
NWRA Director of Federal Affairs
Ian Lyle and NWRA Intern Harmony
Wormwood spoke with the congressman
about the proposals, the Water Rights
Protection Act, and advocating for Congressman Gosar at a hearing regarding the EPA on Capitol Hill.
state-granted water rights.
Congressman Gosar: I think that the proposed rule
Ian Lyle: What are the principles that you learned as would expand Clean Water Act (CWA) jurisdiction over
a small business owner that you apply to your work in nearly all areas with any water connection to downstream
Congress? navigable waters, including man-made conveyances such
as ditches and stock ponds.
Congressman Gosar: The federal government creates [It is my belief that] this would directly contradict
the field in which all of us participate. But, as a business prior U.S. Supreme Court decisions, which imposed
owner, I also understand that the federal government limits on the extent of federal CWA authority. Although
impugns us with rules and regulations that become an the agencies have maintained that the rule is narrow
expense and an obstacle to providing a good or a service. and clarifies CWA jurisdiction, it in fact aggressively
Those costs are ultimately passed on to the consumer. expands federal authority under the CWA while bypassing
Congress and creating unnecessary ambiguity. The rule is
Ian Lyle: What are your thoughts on the EPA and U.S. based on incomplete scientific and economic analyses.
Army Corps of Engineers’ proposed rule on the definition On June 2, I held a field hearing on the issue in
of waters of the United States? Arizona that was attended by five members of Congress.
10 Irrigation LeaderWe had a packed house at the state capitol building. areas traditionally regulated by states. This runs contrary
We heard testimony from nine Arizona witnesses who to long-standing policy that respects the power of the
unanimously opposed the proposed rule. EPA and the states to regulate groundwater. The Forest Service claims
Army Corps of Engineers refused to participate in the that surface water and groundwater are “hydraulically
hearing. I think they would have learned a lot from interconnected,” and therefore, it will evaluate any state,
hearing from the people on the ground in Arizona. I local, or private water project on adjacent land that could
would encourage them to hold regional listening sessions potentially connect with groundwater. Alarmingly, like the
in the future to ensure that they hear from the citizens waters of the United States proposed rule, this directive
that will be most impacted by this flawed rule. was proposed without input from state or local leaders and
without any meaningful outreach to water users.
Harmony Wormwood: How do you think this On June 24, 2014, I signed on to a letter with 43 of my
proposal will affect farmers and ranchers in your district? colleagues from both the House and Senate to Agriculture
Secretary Vilsack warning that the new directive will
Congressman Gosar: The rule will dramatically restrict access of water providers and other Americans
impact ranchers and farmers in my district. Arizona’s to public lands and interfere with state and private water
unique geography and climate result in floodplains of rights. We asked him to withdraw this flawed rule.
ephemeral waterways, which provide valuable space for This proposal has reinforced our belief that the Forest
agriculture, livestock, and other economic interests for Service is attempting to override state water laws. While it
most of the year. Since waters in a floodplain will be has not drawn media attention, water providers should be
considered adjacent waters in the proposed rule and, just as concerned about the Forest Service’s groundwater
therefore, subject to CWA jurisdiction, use of this valuable management proposal as they are with the waters of the
land may be prohibited. United States proposal.
Ian Lyle: What are your thoughts on the Forest Ian Lyle: The Forest Service also recently announced a
Service’s groundwater management proposal? Should revised position on its ski area water rights directive. Does
water providers be as concerned about this proposal as this revised position do enough to respect state-granted
they are with the waters of the United States proposal? water rights and private-property rights?
Congressman Gosar: The current draft of the Congressman Gosar: Absolutely not. The directive is
proposed directive would expand federal authority into a very minor patch. Instead of directly requiring transfer
Congressman Gosar hosted a field hearing on June 2 at the Arizona State Capitol to scrutinize the EPA's proposed rule to
expand the definition of waters of the United States under the Clean Water Act.
Irrigation Leader 11as a condition [of permitting], the Forest Service has
employed a nonseverability clause [such that water rights
could not be sold separately from other ski area assets]. So,
the proposal does remove the argument that forced water
rights transfers divest ski areas of an interest against which
they can obtain financing to maintain ski runs, build lifts,
and upgrade facilities. However, [the proposal] would still
be an encumbrance on the right to use water beneficially,
which is at odds with state water law.
The Federal Register notice goes to great lengths
to protect the notion that the Forest Service has the
authority to take water when it wants. This is worrisome
because it indicates that the Forest Service doesn’t want to
close the door on the possibility of forced transfers in the
future.
Ian Lyle: This directive talks about ski area water Congressman Gosar investigating the furrows on a Yuma-
rights. Do you think that it also has implications for water area farm.
rights outside of ski areas?
Ian Lyle: Will it help address the groundwater
Congressman Gosar: Yes, it will have implications for management and ski area proposals?
farmers, ranchers, and irrigated agriculture. The Forest
Service retains a policy (in section 2540 in the Forest Congressman Gosar: The ski area proposal represents
Service Manual) that pursues U.S. possessory interests the fifth policy change on this issue by the Forest Service
in almost all water originating on Forest Service lands. in 12 years. The Water Rights Protection Act will uphold
The new ski area directive is in direct conflict with that long-standing federal deference to state water law in these
policy, and if implemented, the interplay between the two matters.
will likely be litigated. With this new position, the Forest
Service has feigned cooperation with the ski areas but has Ian Lyle: The population of Arizona has grown nearly
left everyone else out to dry. 12‑fold since the 1950s, but water consumption remains
about the same due to collaborative efforts by Arizona
Ian Lyle: Tell us about the Water Rights Protection water administrators and users. As the demand for water
Act. in Arizona and the rest of the West continues to grow,
will the EPA and Forest Service proposals make it more
Congressman Gosar: It’s a great bill, and I was proud difficult to work collaboratively and meet future water
to play an active role in assisting my good friend and needs?
colleague, Scott Tipton, in passing this legislation through
the House Resources Committee and Water and Power Congressman Gosar: Certainly. Arizona has been at
Subcommittee. I was a cosponsor along with 14 other the forefront of water conservation innovation for years.
bipartisan colleagues. On the other hand, these agency proposals will tie up
The Water Rights Protection Act [H.R. 3189] prevents precious water resources for municipal and agricultural
the federal government from taking privately held water users and promote frivolous litigation.
rights without just compensation. It would protect a Just look at what’s going on in California, where
variety of water users, including rural communities, we are having a water crisis. Federal regulations and
businesses, recreation opportunities, farmers, and environmental lawsuits have exacerbated drought
ranchers, as well as other individuals who rely on privately conditions. Federal government policies have allowed
held water rights for their livelihood. It would do so for more than 300 billion gallons of water to be diverted
by prohibiting federal agencies from predicating the into the San Francisco Bay just to protect a 3‑inch fish.
issuance of permits, leases, and other land management This has had a dramatic impact: killing thousands of jobs
arrangements on the transfer of water rights for which it for ranchers and farmers, harming our food supply, and
would otherwise have to pay just compensation under the leading to unemployment levels as high as 40 percent in
Fifth Amendment of the Constitution. some California communities. This defies common sense.
12 Irrigation LeaderADVERTISEMENT
dpcpipe.com I 800.PVC.PIPEThe Challenge of NPDES Permits for Herbicide
Applications
Washington State Department of Ecology has been delegated
authority by the U.S. Environmental Protection Agency to
implement the Clean Water Act and provide NPDES permits
By Kacie Thrift to irrigation districts. Each permit lasts for five years and then
must be renewed. During the time of renewal, changes can be
A
quatic vegetation has many negative effects on made to the permit. The Department of Ecology may modify
irrigation districts, including reduced storage this permit to impose new or modified numerical limitations,
capacity in reservoirs, hydroelectric production if necessary, to meet water quality standards for surface waters,
interference, distorted canals design features, degraded sediment quality standards, or water quality standards for
recreational uses, and reduced water quality and wildlife habitat groundwaters, based on new information obtained from sources
value. Record-high temperatures this year have caused vegetation such as inspections, effluent monitoring, or department-
to grow fast and thick, which can affect water movement approved engineering reports. The current permits for the three
throughout a canal. Columbia Basin Irrigation Districts expire in June 2017.
Like any water project, the Columbia Basin Irrigation “You have to be careful when you ask for change because it
Districts, located in eastern Washington State, must deal with might not always be in your favor,” said Quincy Columbia Basin
aquatic vegetation. Irrigation District Water Quality Manager Craig Gyselinck.
“Pondweeds limit capacity in laterals, while algae buildup can “However, if I were to ask for change it would be for more [a
plug screens and pumps,” said East Columbia Basin Irrigation bigger variety of ] herbicides. We have a small list of chemistries
District Water Quality Supervisor Jamie Balliet. compared to other state aquatic weed permits.”
The districts use aquatic herbicides and algaecides to control Balliet said the districts are limited to herbicide types but
plants and algae; however, permitting laws regulate the chemicals are also subject to holding time requirements. He said there
that can be used and how they can be applied. These guidelines has been discussion on wanting to increase holding time
are established by National Pollutant Discharge Elimination allowances—the amount of time the district is allowed to hold a
System (NPDES) permits in compliance with the Clean Water pollutant in the laterals before it reaches a point of compliance.
Act. “There are certain chemicals our permit allows us to use
“These guidelines require that any chemical used must be that would be beneficial to the district, but we cannot meet the
at or below a predefined concentration at a designated point of required holding time. You would need to build storage ponds
compliance,” Balliet said. “The State Department of Ecology and stop gates to divert water and impede flow, but that doesn’t
considers a point of compliance as the location where water financially make sense.”
treated with pesticides enters surface water bodies that existed Although the new permit has created an increase in staff
prior to creation of reclamation and irrigation projects. To ensure time and aquatic weeds for the districts, the water quality
we meet our chemical tolerances at a point of compliance, often managers do see a bright side. “The permit protects us and
times we are required to apply chemicals at a lower rate than the shows that we are being environmentally responsible. But it is
chemical label suggests, lowering efficacy.” an ongoing process,” Gyselinck said. “One of the things I worry
Balliet said the limitations can become problematic on the about with the new permit is that, with the new water quality
lower end of laterals near the compliance sites, where dilution standards, we might have even stricter limits than we already
and low chemical concentrations reduce herbicidal control. have.”
For the Columbia Basin Irrigation Districts, the NPDES Before the new permit is finalized, a comment period will
permits are a fairly new limitation. On March 12, 2001, the be held. Balliet said changes are possible, but advocating for
Ninth Circuit Court of Appeals decided that application of an changes that are advantageous to the districts can become an
herbicide in compliance with the labeling requirements of the arduous task.
Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA) “We are only allowed to discharge under the guidelines of
did not exempt an irrigation district from the need to obtain the current NPDES permit, so we make do with what we have
an NPDES permit. This requirement came after the Talent [current guidelines],” Balliet said.
Irrigation District in southern Oregon applied the herbicide
Acrolein to an irrigation canal and a leaking waste gate led to a Kacie Thrift writes about issues affecting the
fish kill. Columbia Basin Project. Most recently, she
Headwaters Inc. and Oregon Natural Resources Council filed was a reporter and assistant editor for two
a Clean Water Act citizen suit against the irrigation district for newspapers in north-central Washington.
applying the herbicide into a system of irrigation canals. The She grew up in Entiat, Washington, and
Ninth Circuit then held a decision that irrigation districts obtain is a graduate with honors from Whitworth
NPDES permits and that irrigation ditches were waters of the University with a bachelor of arts in
United States under the Clean Water Act. journalism and mass communications.
Washington is a regulated state, meaning that the
14 Irrigation LeaderADVERTISEMENT
Maricopa Water District
I
District Focus
n an era of strained water supplies and revenues, In fact, our district was one of the few in which the
Maricopa Water District (MWD) has embraced entire system was lined with concrete. The main canal
enterprises not normally undertaken by irrigation was completely lined by the early 1980s. Most of our
districts. As a result, it has positioned itself to be an laterals were lined in the 1960s.
important leader in the delivery of water to the farms At that time, the Soil Conservation Service had
and residents west of Phoenix for years to come. a program that provided funds for farmers to line
MWD delivers surface water and groundwater to ditches. If the farmers turned those funds over to the
39,000 acres in the western Gila River Valley, along district, the district would then match those funds.
the White Tank Mountains. The district owns surface Twenty-five years ago, when I first started here, we
rights to the Agua Fria River dating back to 1888. were probably looking at 14 percent water loss. Right
MWD built Waddell Dam in 1927, after which it now, between our surface water and groundwater,
began delivering water to landowners. MWD also MWD loses less than 10 percent of its total
provides electricity to its members. supplies annually. All of our pipes are rubber-gasket,
MWD has a 157,600 acre-foot storage capacity reinforced-concrete pipe.
in Lake Pleasant, which is impounded by the
Reclamation-built New Waddell Dam, which put From Cotton to High Cash Value
the District’s Waddell Dam 100 feet under water.
Downstream from Lake Pleasant, Camp Dyer Dam We serve 11,000 agricultural acres out of 39,000
diverts water into the concrete-lined, gravity-fed total acres. Those agricultural acres include hobby
Beardsley Canal. Water in the Beardsley Canal goes farms—2- to 5-acre plots that flood irrigate for
about 15 miles before it gets to the district; from there gardens, horses, and pastures. The most district land
it runs along the west side of the district. that had been utilized for agriculture was roughly
26,000 acres. There are sections of desert land in the
Ahead of the Efficiency Curve district that had never been cultivated.
Historically, farmers in the district grew cotton,
MWD owns and operates a 130-mile system of but we have not had cotton in the district for about
lined, open canals and pipelines that delivers water to five years now. Our farmers started moving over to
the high corner of every section within the district. vegetables and higher-cash-value crops—carrots;
Pleasant Harbor Marina.
16 Irrigation Leader500 feet in the late 1930s and early 1940s. They
were deepened to 1,000 feet in the 1950s. That
means that MWD has an old well field in need
of rehab. In fact, the district has reached the
point at which we will have to start drilling new
wells.
When the original wells were drilled to 500
feet, the wells had 20-inch casings; when MWD
deepened them, the wells required 16-inch
casings. Those casings are now 60 years old.
We cannot patch them anymore. If the district
relines them again, it would require a 14-inch
casing. MWD is known as the district with the
crooked holes—that is why all of our wells are
submersible. The holes are not straight enough
for turbines. So if we adopt 14-inch casings, we
will need to find 12-inch submersible pumps.
Old Waddell Dam. Completed in 1927. Breached and inundated in the Pumps that size are expensive and have a short
early 1990s. lifespan.
melons; broccoli; and some wheat, depending on the Getting Creative With Water Supplies
market. We have two of the largest rose growers in the
United States. Many of our vegetable farmers have moved Water supply is an issue—MWD will be nearly out
from furrow to sprinkler irrigation, but generally, MWD of surface water by the end of this year. Historically, the
growers have used flood. production from our watershed is about 45,000 acre-feet
per year (based on a 60-year average). We have been below
Development-Driven Infrastructure Projects 10,000 acre-feet per year for the last 4 years. With us, it is
feast or famine.
Over the last 15 years, more than half of MWD’s We supplement our surface water with groundwater
service area has been developed. Recent infrastructure and in lieu water, which is available here in Arizona
projects have been driven by that development. A lot of through a program managed by the state Department of
our old laterals have gone into pipeline to accommodate Water Resources. MWD has a permit for a groundwater
those development projects. savings facility for up to 40,000 acre-ft. In lieu of
A few years back, a local developer needed to modify groundwater pumping, we procure water from Central
one of MWD’s siphons on the Beardsley Canal by Arizona Project (CAP) contractors. If the contractors
widening it to reduce the floodplain on the upstream side. cannot make use of their CAP water, MWD may pay
The developer came in and replaced a 50-foot by 10-foot them for their water in lieu of pumping groundwater.
by 10-foot box siphon with a 250-foot long, 10-foot We have been doing that for 15 years. Right now, MWD
diameter, double-barrel siphon. MWD expects to have one pumps about 9,000 acre-feet of water; 15 years ago, we
or two more of those types of projects coming up in the were pumping 25,000 acre-feet of water. This arrangement
next few years. works out well because MWD can buy that CAP
water for less than what the power costs to pump the
Aging Groundwater Infrastructure groundwater.
Back in the 1980s, MWD did have a CAP allocation
As part of our water portfolio, MWD owns and of 40,000 acre-feet. However, since the allocation was
operates a well field of 50 wells. We power our pumps subject to a take-or-pay setup, it was too much for us.
with hydropower from Glen Canyon and Hoover Dams. With a couple of big rains, MWD would have water for
We also buy supplemental power from Arizona Public 3 to 5 years. Also, taking our allocation subjected us to
Service and excess power from the Navajo Generating Reclamation Reform Act requirements. That didn’t sit
Station. Those wells were originally drilled to a depth of well with our bigger farmers. For those reasons, the district
Irrigation Leader 17Beardsley Canal, MWD's main water delivery conduit.
elected to not sign the contract. However, in anticipation on the lakeshore of Pleasant Harbor. We received a
of signing that CAP contract, MWD built a turnout off percentage of its gross revenues. Last April, the 20-year
the CAP canal to the Beardsley Canal. So, when MWD lease expired and the district bought the marina. So now
contracts for CAP water, it can take the water directly into MWD is an irrigation district that runs an RV resort with
our system. 250 full hook-up sites, boat ramps, and a 600-wet-slip
MWD is also working with a local water company to marina. Because of these operations, MWD employs 120
sell some of the district’s surface water supplies to it for full- and part-time employees. Those 225 acres are truly
residential use. Surface water is appurtenant to the land. invaluable.
So, the water company would buy surface water from We also consider ourselves land developers. To form
MWD on behalf of those lands that cannot take direct the district and set its boundaries, William Beardsley, who
use of MWD surface water, treat the water, and return the was instrumental in the development of MWD, swapped
water to those lands as potable water. It is a program that land with the railroad. So initially, the district owned all
is similar to what Salt River Project does with some of of the land within its boundaries. The district then sold
Arizona’s big cities. off land to the farmers. Over the years, some of that land
came back to the district. The bottom line is that the
Employing the Entrepreneurial Spirit to district owned about 2,500 acres of land. As land came
Subsidize the Delivery of Water under development in the mid-1990s, MWD decided to
do a master plan of its existing land assets. We usually take
MWD sells water at $40 an acre-foot, but it costs the the development plans up to final plat and, at that point,
district $90 an acre-foot to deliver it. So MWD subsidizes sell it to developers. We have sold off about 800 of those
water to our farms by $50 an acre-foot. To provide that acres.
subsidy, the district has ventured into providing different With all of these enterprises, we have to remind
services to diversify its revenue streams. As mentioned ourselves sometimes that MWD’s primary purpose is
above, MWD sells power to our farmers and to municipal to deliver water. However, these enterprises exist to
wells, treatment plants, and pumping stations. subsidize the cost of water. As long as the business that
MWD is also in the recreation business—MWD owns we do is appurtenant to our main
and operates Pleasant Harbor, a marina and RV resort, on purpose—to deliver irrigation water
Lake Pleasant. As compensation for inundating MWD’s at the lowest possible cost—it is
Waddell Dam and adjoining land with the construction appropriate.
of New Waddell Dam, the Bureau of Reclamation
transferred 225 acres on the east side of the lake—the only Glen Vortherms has worked for
private land surrounding the lake—to the district. Maricopa Water District for 26 years,
Twenty years ago, we entered into a lease agreement the last 2 as general manager. You can
with a private company to build and operate a marina reach Glen at glenv@mwdaz.com or
623.546.8266.
18 Irrigation LeaderADVERTISEMENT
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Mike Urton
T
Manager’s Profile
he San Carlos Irrigation and Drainage District
(SCIDD) delivers water to the sun-baked
Gila River Valley in south-central Arizona.
Established in the 1920s, the SCIDD is part of a
Bureau of Indian Affairs (BIA) irrigation project that
comprises 100,000 acres—50,000 acres on Indian land
and 50,000 off the reservation. SCIDD’s counterpart
on the Gila River Indian Reservation is the Gila River
Irrigation and Drainage District. Mike at Ashurst-Hayden Diversion Dam with the Ovivo
Built in 1928 and dedicated by the nation’s trash handling system operating in the background.
30th president, Coolidge Dam impounds the San Carlos
Reservoir east of Globe, Arizona. Fifty miles downstream Mike Urton: Cotton, alfalfa, corn silage, and small
and just east of Florence is Ashurst–Hayden Diversion grains are the usual mix around here, cotton and alfalfa
Dam. SCIDD’s 300 miles of earth-lined canals deliver being most predominant. Arizona is actually a net
water to an area that runs nearly 35 miles from the exporter of alfalfa hay. There have been a lot of dairies
diversion dam to city of Casa Grande. SCIDD is divided that have moved into the area. The downside to that
into six districts that coordinate with the BIA to manage is that it takes quite a bit of water. We have been in a
joint works facilities that deliver water to both SCIDD drought since 1994, so these last 20 years have been
and the Gila River Indian Reservation. lean in terms of water supply.
Mike Urton has been associated with SCIDD for a Most landowners have an outside source of water—
long time. A farmer by trade, Mike served on the SCIDD groundwater or Central Arizona Project—but not all.
board, including as board president, from 1983 to 2006. The project owns and operates about 50 groundwater
The board asked Mike to come back as general manager wells, but they are not available to the western half of
in February of this year to help facilitate a full-scale our district. The crop insurance program helps to keep
canal relining and infrastructure upgrade. He oversees an the overhead paid. It helps keep farmers in business,
experienced staff of 23 who cover SCIDD’s day-to-day but it is not something we like to rely on. We have had
operations, enabling him to take on the political endeavors to learn to live within the limited resources that come
that go along with the job and the rehab project. Irrigation down the river.
Leader’s senior writer, John Crotty, spoke with Mike about
the challenges of rehabbing 300 miles of earthen canals, the John Crotty: Tell our readers about SCIDD’s
realities of development and farming in the desert, and the rehabilitation project.
role SCIDD will play in an urbanizing Pinal County.
Mike Urton: We are in the middle of the rehab
John Crotty: Please describe the difference between project—we’ve already rehabilitated the diversion
serving as a board president and serving in the general dam and installed a sediment basin to remove coarse
manager position. sediment from the system. Then, we will begin lining
the non-Indian portion of our system with concrete.
Mike Urton: I think [having served as board All of this has been made possible through the Gila
president] has been an advantage. The board respects River Water Rights Settlement Act of 2005 and is
where I’ve been and the experience I bring to the table. being paid for through the Lower Colorado River
When I came back to take this position, there had Basin Fund. On the non-Indian portion of the project,
been almost a complete turnover on the nine-member we expect to save 25,000 to 35,000 acre-feet per year.
board. There’s a mutual respect—I understand that
they have farms to run and businesses. It helps to have John Crotty: What are some of the biggest
been on both sides of the fence. It is a unique situation challenges facing the district?
but a healthy one, I think.
Mike Urton: There are several: drought . . . water
John Crotty: What do farmers in your district supply . . . one of our biggest issues, as you can imagine
grow? with 300 miles of earth-lined canals, is maintenance.
We’re busy with a lot of excavating equipment—
22 Irrigation Leaderbackhoes, slopers, graders. Maintenance expenses are a Mike Urton: Water is available to municipalities and
challenge. schools for irrigation purposes only. There’s no domestic
One the blessings of the Water Settlement Act is that supply. This irrigation system has one of the heaviest
it helps us address that maintenance and water delivery sediment loads in the country. It’s not something I’m proud
challenge. The Indians have been made whole for the most of, but it is just a fact of life. That is life on the Gila and
part regarding water supply, and it provides the funding San Pedro Rivers. We start seeing the San Pedro flow after
for SCIDD to line our system. Everyone involved shares summer rains, and that introduces a significant sediment
in the savings. And right now, we are working to bring our load.
rehabilitation project back on track. Average farm size is changing. My family has been
We’re making progress. Of course, since the money farming here since 1948. When you go back to that era, it
to pay for the project is coming from the Bureau of was all family farms. That has changed a lot. There’s been
Reclamation, we have a relationship with it and monthly a lot of turnover in recent years. There are economies of
coordination meetings with other agencies, including the scale. The average farm size is on the rise. There are some
BIA and the Pima–Maricopa Irrigation Project. There management companies that are moving in. We irrigate
are a lot of entities involved, and a lot of coordination some subdivisions as well as farms with thousands of acres.
that needs to take place. One of the hats that I wear is
administrator of the off-reservation portion of the rehab John Crotty: What advice would you give to other
project. My job is to coordinate all of the efforts to get this managers with respect to working with multiple agencies
done. on infrastructure projects?
John Crotty: Has coordinating all the groups on this Mike Urton: Breathe deep. It is important to try
rehab project been a challenge? to understand different perspectives. Cooperation and
openness are huge. I have an advantage because I am
Mike Urton: It is a challenge, although most of the new—I don’t know the history among the different
people that we work with are cooperative and want to get agencies, and I don’t care. We have a clean slate with all
the job done. When you have that many bureaucracies our partners. However, you do have to be firm. I represent
involved, there are territorial conflicts, but that is part the district’s landowners, and their interests come first in
of the challenge. Everyone is vested and has legitimate any negotiation.
concerns. Those concerns need to be resolved.
The board came to me to fill this role thinking I was John Crotty: Looking ahead to the near future, what do
uniquely qualified. I may be. I don’t know; we’ll see if I am you envision for SCIDD?
actually able to get something done. But I have worked
before with these entities. I’ll see what I can do. I’m no Mike Urton: I have a five-year plan, and that is to have
miracle worker, but I look forward to the challenge, I like the rehabilitation done by then. That opens up possibilities
coming to work everyday, and I have a great staff to work for higher efficiencies and lower maintenance costs. This
with. area is changing. We are in a corridor that is right between
Phoenix and Tucson, so there is a lot of speculation as
John Crotty: Are you looking to adopt some to what will happen over the next 10 to 20 years. Water
technology to help automate your system? will be key. Developers sometimes look ahead without
considering the fact that you cannot live (or develop) in
Mike Urton: There is a cost-benefit factor involved a desert without water. In the future, there will be more
with automation. We tried a high level of technology to interactions with political bodies—the state, the county,
operate the gates and trash rack at the diversion dam. A lot municipalities—to come up with solutions to water supply
of it is working well, but some of it not so well. Inherent problems.
with new technology are a lot of expense and a lot of bugs. SCIDD will be right in the middle of it. Our supply
We’re reevaluating how high-tech we want to get. For the is not reliable—we have one reservoir, and our watershed
cost of some these systems, you can outfit a guy with a is in western New Mexico, where it is broad and flat. But
pickup for a lot less money. I think that we will have smart it is a supply, and it will be important to this area going
gates that operate automatically—there will be some smart down the road. We look forward to being an important
structures along the way. How integrated those structures player in Pinal County and in central Arizona. There will
are remain to be seen. We’re looking forward to that. be challenges, but as my administrator Sally likes to say,
“Those challenges are opportunities to excel.”
John Crotty: How has urban growth impacted your
district? Have you started delivering to municipalities?
Irrigation Leader 23R E C L A M A T I O N P R O F I L E
Deputy
Commissioner
Jennifer Gimbel
J ennifer Gimbel is the Bureau of
Reclamation’s deputy commissioner
for external and intergovernmental
affairs. She oversees Reclamation’s
congressional, legislative, and public
affairs activities and is responsible
for Reclamation’s relationships with
federal, state, and local governments, as
well as citizen organizations and other
nongovernmental groups. Deputy Commissioner Gimbel speaking with attendee of Reclamation
Jennifer started her career working for Stakeholder meeting in Denver, Colorado.
the Wyoming Attorney General’s office and
the Colorado Attorney General’s office, Kris Polly: Irrigation is near and dear to you. Tell us about your
where she advised and represented the connection to irrigated agriculture.
attorney general and other state officials
regarding interstate water matters, water Jennifer Gimbel: I grew up in Cheyenne, but I spent summers
law, and administrative law. She worked with my uncles Rueben and Louie on their eastern Colorado farms.
at Reclamation from 2001 until 2008 My dad made sure that his three girls knew where their food came
on a variety of policy and program issues, from and how hard it was to work on a farm; so, we would spend time
including serving as chair of the secretary’s helping with all the chores—milking the cows, working the vegetable
Indian Water Rights Working Group. garden.
Jennifer spent the next five years My uncles were flood irrigators. My dad didn’t want me to get in
as director of the Colorado Water the way, so I would watch my uncles set the tubes to irrigate—it was a
Conservation Board (CWCB), which is real art form. Those summers formed my first experience dealing with
the water policy agency for the state of the importance of water and understanding how necessary it was for
Colorado. Jennifer moved from the CWCB my uncles to grow hay.
to the U.S. Department of the Interior
as counselor to the assistant secretary for Kris Polly: You started this past March. How do you like the job?
water and science, where she focused on
legislative and legal matters addressing the Jennifer Gimbel: Love it. It’s a great job; I love the people. I am
Rio Grande, Salton Sea, California Bay very comfortable with the issues. I really enjoy working with all of the
Delta, and the Clean Water Act. different Reclamation partners and stakeholders: water users, M&I
Jennifer has a bachelor of science [municipal and industrial], recreation, the NGOs [nongovernmental
and juris doctor from the University of organizations].
Wyoming and a master of science from the
University of Delaware. Kris Polly: Tell our readers about the job. What are your
Irrigation Leader’s editor-in-chief, responsibilities?
Kris Polly, spoke with Jennifer about her
new position and what is on the horizon Jennifer Gimbel: Part of my job is to make sure that we are
for Reclamation’s public outreach program. communicating with our stakeholders, with each other, and with
Congress; making sure that information is getting out. Dan DuBray,
chief of public affairs, and Dionne Thompson, chief of congressional
24 Irrigation Leaderand legislative affairs, have been essential in our
communication efforts. The biggest issue I am addressing
right now is California water. I thought the Colorado
River was complicated, but I am learning that it is not
nearly as complicated as California.
I love being able to meet new people and new
stakeholders, to figure out really complex issues and how
to reach a good outcome. With California, we are dealing
with the drought and the Bay–Delta Conservation Plan.
Knowing that we have work that needs to be done in
the delta and farmers and municipalities that need to get
water, ensuring a sustainable supply for the future really is
a huge puzzle.
Kris Polly: What are some of the other key issues that
you will be addressing in the next couple of years?
Mike Miller, general manager of Greater Wonatchee
Jennifer Gimbel: Drought is the big one. However, Irrigation district in background with Deputy Commissioner
we will also be addressing climate change. As you know, Gimbel during stakeholder tour.
President Obama and Secretary Jewel are very focused
on ensuring that we are mitigating and figuring out Right now, one of our main topics is Reclamation’s
how to move forward on the issue. Two key efforts for infrastructure initiative. Reclamation is in the process of
mitigating climate change are WaterSmart and the Title selecting data to detail the infrastructure we have, its age,
XVI programs, particularly water efficiency grants and and what improvements are needed. We are also looking
basin studies. We are also looking at stretching water and at the best ways to share that information with people and
power supplies in the face of growing demands. Along how to fund the kind of program that ensures we keep
those lines, we are working to help irrigators use existing up with all that data. We will likely have a PowerPoint
facilities for hydropower. presentation on this issue at our July stakeholders’ meeting
in Denver. I expect a more substantial report in September.
Kris Polly: Have you been able to get to the different
regions and visit with local Reclamation staff, water Kris Polly: What is your message to our readers about
providers, and irrigators? working with the Bureau of Reclamation?
Jennifer Gimbel: I have not had the opportunity to Jennifer Gimbel: Reclamation is their friend. I have
get out and about outside of California and the Technical seen Reclamation do some great things for different
Resource Center in Denver. We are getting ready to do a constituencies and get very involved in local communities.
stakeholder meeting in Denver in July. Dan [DuBray] and [Reclamation officials] care: They care about the delivery
I have a grand plan to conduct stakeholder meetings in of water and power; they care about the job; they care
every region in the next couple of years. We want to get about the communities in which they work. I hope people
out and meet the people whom we serve. We want to have see that. If they do not see that, they should let me know.
an opportunity to talk with them, answer their questions,
and get their ideas. This will coincide with the arrival of Kris Polly: And what is your message to irrigators
the new commissioner, Estevan López. specifically?
Kris Polly: If people have ideas for the regional Jennifer Gimbel: As I mentioned earlier, irrigators
stakeholder meetings, how can they best get those ideas to have a soft spot in my heart. I do have a sense of what
you? they go through and how they make their living. I know
that from my early years helping out on my uncles’ farms.
Jennifer Gimbel: They can email Dan or me. We are It is kind of a personal sentiment, but I look at irrigators
interested in new ideas and whether we are reaching all as if they are my uncles. I remember how smart and how
potential stakeholders. Are there people interested in what humble they were.
we are doing that we haven’t reached yet? Irrigators can be extraordinarily creative in finding
We are definitely looking for topics for those meetings. workable solutions. They have my respect.
Irrigation Leader 25You can also read
