interviews
Water and the American West
by Richard Frank
October 25, 2021
This interview with Richard Frank, professor of environmental practice at the UC Davis School of Law and Director of the California Environmental Law and Policy Center, was conducted and condensed by franknews.
frank | Can you tell me a little bit about the story of water and how it's tied to the West, and to California in particular?
Richard | A friend of mine who's a Court of Appeals Justice here in California wrote an opinion on a water law dispute and started it with the quote, "the history of California is written on its waters." And I think that the point is true of the entire American West.
Water policy and legal issues are inextricably tied to the development of the Western United States; water is the limiting factor in so many ways to settlement, to economic development, to prosperity, and to the environment and environmental preservation.
Can you talk about the difference between groundwater and surface water– and the policies that regulate each?
There are really two types of water when it comes to human consumption. There's surface water: that is the water that is transmitted by lakes, rivers, and streams. Then there is groundwater, and a substantial amount of water that Americans and the American West rely on is groundwater. That is water that is stored in groundwater aquifers, which are naturally occurring groundwater basins. Both groundwater and surface water are critical to the American West and its economy and its culture.
Traditionally a couple of things are important to note, first of all, water is finite. Second, water gets allocated in the Western United States generally at the state level. There's a limited federal role. Primarily, policy decisions about who gets how much water for what purpose are made state by state.
I think allocation is really interesting in that it's more state-level than federal. How was water and the allocation of water in California designed? Is it a public-private combination? What goes on in terms of the infrastructure of water?
Another very good question. The answer is it depends. Most of our water infrastructure is public in nature.
Again, in the American West, the regulation of water rights is generally done at the state level, but the federal government, historically, has a major water footprint in the American West because it has been federal dollars and federal design and management that really controlled much of the major water infrastructure in the American West — you know, Hoover Dam, and the complex system of dams and reservoirs on the Colorado River in California, with the Central Valley Project that was built and managed by the federal government with Shasta Dam on the upper Sacramento River as the centerpiece of that project. But we also have a California State Water Project, the key facility being the Oroville Dam and reservoir on the Southern River that is managed by state water managers. If we were starting over, that kind of parallel system would make no particular engineering or operational sense.
But, we are captive to our history.
And then you have these massive systems of aqueducts and canals that move water from one place to another throughout the American West. They are particularly responsible for moving water from surface water storage facilities to population centers. In the last 50 to 75 years, these population centers have really expanded dramatically, so you need massive infrastructure to deliver water from those storage facilities, the dams, and reservoirs, which generally are located in remote areas to the population centers. So it takes a lot of time and energy to transport the water, from where it is captured and stored to where it is needed for human use.
California has faced continuous drought – what measures is the state taking now to manage water?
Just to frame the issue a little bit — we have, as I mentioned, a growing population in the American Southwest at a time when the amount of available water is shrinking due to drought and due to the impacts of climate change. We have growing human demand for residential and commercial purposes and at the same time, we have a shrinking water supply. That is a huge looming crisis.
And it is beginning to play out in real-time. You see that playing out in real-time. For example, several different states and Mexico rely on Colorado River flows based on an allocation system that was created in the 1920s, which is overly optimistic about the amount of available water. From the 1920s until now, that water supply has decreased, and decreased, and decreased. Now you have interstate agreements, and in the case of Mexico, international agreements that allocate the finite Colorado river water supplies based on faulty, now obsolete, information. It is a real problem.
What measures do you take now, knowing this information?
If you look at the US Drought Monitor, it is obvious the problem is not limited to the Colorado River. We are in a mega-drought, so cutbacks are being imposed by federal and state water agencies to encourage agricultural, urban, and commercial water users to cut their water use and, and stretch finite supplies as much as possible through conservation efforts.
In California, we have the State Water Resources Control Board, the state water regulator in California, and they have issued curtailment orders. Meaning, they have told water rights holders, many of whom have had those water rights for over a hundred years, that, for the first time, the water that they feel they are entitled to, is not available. Local water districts are also issuing water conservation mandates; the San Francisco water department is doing that, in Los Angeles, the metropolitan water district, is urging urban users to curtail their efforts.
And then agriculture. Agricultural users — farmers and ranchers — have had to get water rights in many cases through the federal government, as the federal government is the operator of these water projects. They have contracts with water users, individual farmers, ranchers, or districts, and they are now issuing curtailment orders. They're saying, we know you contracted for X amount of water for this calendar year, but we are telling you because of the drought shortages we don't have that water to supply. Our reservoirs are low at Lake Shasta or at the Oroville Dam.
When you drive from San Francisco to LA on the five, you see a lot of signage from the agricultural farming community about water. There's apparently some frustration about this. What are the other options for them?
About 80% of all human consumed water goes to agriculture. That is by far the biggest component of water use, as opposed to 20% used for urban and commercial, and industrial purposes.
Over the years, ranchers and farmers, and agricultural water districts assumed that the water would always be there — as we all do.
And the farmers and ranchers have, in hindsight, exacerbated the problem by bringing more and more land into production. You see on those drives between San Francisco and Los Angeles, particularly in the San Joaquin Valley, all these orchards are being planted. Orchards are more lucrative crops than row crops — cotton, alfalfa, and rice. But, if you are growing a row crop, you can leave the land fallow in times of drought.
We don't have to plant. If the water stopped there, or if it's too expensive to get, it may make economic sense, but if you have an orchard or a vineyard it's a high value, those are high value crops, you don't have that operational flexibility and they need to be irrigated in wet years and in dry years. Now, you see these orchards, which were only planted a few years ago, are now being uprooted because the farmers realized that they don't have the water necessary to keep those vineyards and orchards alive. For ranchers, the same thing is true with their herds. They don’t have enough water for their livestock.
The water shortage has never been drier than it is right now. Farmers and ranchers are being deprived of water that they traditionally believed was theirs and they're very understandably, very unhappy about it. They see it as a threat to their livelihood and to the livelihood of the folks who work for them. Their anger and frustration are to be expected, but it's nobody's fault.
To say, as some farmers do, that it is mismanagement by state and federal government officials, I think is overly simplistic and misplaced in the face of a mega-drought. Everybody's going to have to sacrifice. Everybody's going to have to be more efficient in how they use water. All sectors are going to need to be more efficient with the water that does exist.
Looking at this percentage breakdown of water use – is it actually important for individual users to change their water habits?
Well, every little bit helps. When you're talking about homeowners, about 70% of urban water use is for outdoor irrigation. So we're talking parks and cemeteries and golf courses and folks' yards. You know, that used to be considered part of that American dream and the California dream — you would have a big lawn in front of your house and behind your house. Truth be told, that has never made much sense in an arid environment. That's where the water savings in urban areas is critical in the way it really involves aesthetics rather than critical human needs, like water for drinking and bathing and sanitation purposes. There is a growing movement away from big lawns, and away from the type of landscaping that you see in the Eastern US — there is no drought in the Eastern United States. As Hurricane Ida and other recent storms have shown, the problem is too much water, or rather than too little in most of the Eastern United States. So it really is a tale of two countries.
We just need to recognize that the American West is an arid region. It has always been an arid region, we can't make the desert bloom with water that doesn't exist. We need to be more efficient in how we allocate those water supplies. And it seems to me in an urban area, the best way to conserve and most effective way is to reduce urban landscaping, which is the major component of urban water use.
You also write about water markets and making them better – for those who don’t know, what is the water market?
Water markets, that is, the voluntary transfer of water between water users, is more robust in some other Western states. Again Arizona and New Mexico come to mind. California somewhat surprisingly is behind the curve. We are in the dark ages compared to other states. Water markets are kind of anecdotal. There is not much of a statewide system. It is done at the local level, through individual transactions without much oversight and without much transparency. And I have concerns about all of those things.
I believe conceptually watermarks are a way to stretch scarce, finite water resources to make water use more efficient. I can, for example, allow farmers or ranchers to sell water to urban uses or commercial usage or factories in times of drought.
Farmers sometimes can make more money by farming water, than they can by farming crops.
There are efficiencies to be gained here.
The problem in my view is really one of transparency. The water markets are not publicly regulated, and some of the people who are engaging in water transactions like it that way, frankly, they want to operate under the radar.
In my opinion, water markets need to be overseen by a public entity rather than private or nonprofit entities. We need oversight and transparency, so that folks like you and myself can follow the markets to see who's selling water to whom, for what purpose, and make sure that those water transfers serve the public interests and not just the private interests.
There have been a number of stories in the New York Times and the Wall Street Journal and the Salt Lake City Tribune about efforts in some parts to privatize water transfer. Hedge fund managers are buying and selling water, as a means of profiting. And it strikes me that when you're talking about an essential public resource — and in California, it is embedded in the law that public water is an inherently public resource, that water is owned by the public and it can be used for private purposes, but it is an inherently public resource — the idea of commoditizing water through the private, opaque markets is very troublesome to me. I think it represents a very dangerous trend and one that needs to be corrected and avoided.
Why is California so behind?
There's no good reason for it. It's largely inexplicable that since the state was created on September 9th, 1860, we've been fighting over water. In the 19th century, it was miners versus farmers ranchers. In the 20th century, with the growth of urban communities, the evolution of California into one of the most populous states with 40 million Californians, it has been a struggle between urban and agricultural uses of water.
In the second half of the 20th century, there was a recognition that some component of water had to be left in streams to protect ecosystems, landscape, and wildlife, including the threatened and endangered wildlife. That suggestion has made agricultural users in California angry. You will see those signs that allude to the idea that food and farming are more important than environmental values. I don't happen to believe that's true. I believe both are critically important to our society. But the advocates for the environment have a proverbial seat at the water table. So that's another demand for water allocation that exists.
Do you maintain optimism?
Yes. I think it's human nature to look on the bright side. I try to do that through research scholarships and teaching. There are models for how we can do this better in the United States. Israel and Saudi Arabia and Singapore are far more efficient with their water policies and efforts. Australia went through a severe megadrought. They came out of it a few years ago, but they used that opportunity to dramatically reform their water allocation systems. That's an additional model. I think most people would agree in hindsight that their previous system was antiquated, and not able to meet the challenges of climate change and the growing water shortage in some parts of the world.
Here in the United States, we can learn from those efforts. There are also some ways to expand the water supply. Desalination for one. Again, Singapore and Saudi Arabia have led the world in terms of removing the salt content from ocean water and increasing water supply that way. In Carlsbad, California, north of San Diego, we have the biggest desalination plant in the United States right now, and that is currently satisfying a significant component of the San Diego metropolitan areas’ water needs. It's more expensive than other water supplies, but the technology is getting more refined, so the cost of desalinated water is coming down at a time when other water supplies, due to shortages and the workings of the free market are going up.
At some point, they're going to meet or get closer. Unlike some of my environmental colleagues, I think desalination is an important part of the equation.
In a proposal that came up in the recall election, one of the candidates was talking about how we just need to build a canal from the Mississippi River to California to take care of all our problems. That ignores political problems associated with that effort, as well as the massive infrastructure costs that would be required to build and maintain a major aqueduct for 2000 miles from the Mississippi to California. That's just not going to happen. Some of those pie in the sky thoughts of how we expand the water supply, I think, are unrealistic.
interviews
We Saw The Limits
by Dr. Sandro Galea
April 2, 2020
This interview with Dr. Sandro Galea, a professor and Dean of Boston University School of Public Health, was conducted and condensed by frank news. Follow him on Twitter: @sandrogalea.
We spoke with a doctor [Dr. Michael Brumage] earlier this week working in West Virginia – he described what was happening now as evidence of a societal failing and undervaluing of public health.
I couldn’t agree more.
When we say public health, what do we mean?
I think we mean two things here. I think we mean the functional, operational mechanics of the public health infrastructure. By that I mean how city, state, and federal agencies work and interact together – and have suffered from decades of underinvestment.
The second part of it is public health is about health, and the health of the world around us. It's about your health and how that might help our health collectively. And it's about creating a world that generates health to build a world where we have safe housing, good schools, clean air, drinkable water, livable wages, fair economies, gender equity. These are all forces that ultimately drive health. And we have deprioritized these forces because we have focused our health thinking on a very individualized biomedical approach. This failure shows our disengagement and disinvestment from public health at both these levels, both the more mechanical core functions of public health, and the creating a healthier world aspect of public health.
Right. We need to look beyond healthcare and healthcare institutions.
Exactly.
You mentioned the coordination between hospitals, state, local, and national. How is responsibility managed and tasked both in and out of crisis? How do you help those in charge at every level?
Collectively, we need to keep reinforcing the messages of public health. Public health should be about all of us paying close attention to the foundations that generate health.
I think the way to do that is by being clear about the message. This is not a one off pandemic. There will be other pandemics. The only thing we don't know is when and where, but there will be others. There have been others in the past, and there will be others in the future. If this is not a wake up call for us to create a healthier world, I'm not sure what it is.
What do we know for sure we need to do to take care of the most vulnerable populations?
There's a lot to do for the care of a lot of our most vulnerable populations. We need to make sure we are paying attention to the homeless, to the low income populations, those who have unreliable sources of income, those who are in prison, and our immigrant population. And each population requires different solutions. The health equity approach means not doing the same thing for everybody, but actually paying particular attention to what needs to be done for those who are most vulnerable.
Right. This virus has made it exceedingly clear that we are only as healthy as our least healthy populations or people.
Exactly. I think that this teaches us that there is no such thing as health for one, without health for all. Health ultimately is a public good, whether we like it or not. Seeing health as a private commodity, as something that you can buy and sell, fails. Because what you can buy is healthcare, and healthcare can only help us if we're already sick. We need to move to a health system, not the sick care system. To do that, we need to invest in the infrastructure that builds health.
Do you think that the stimulus bill that was just passed does what it needs to do?
I think it's a good first step. It has provisions for individuals, for small businesses to keep people employed, and for unemployment insurance. A lot of these provisions will depend on how they're implemented. However, the stimulus bill doesn't at all affect those who are living on the margins. For example, the unemployment insurance does not affect those who do not file tax returns. Twenty percent of Americans don't file tax returns. It doesn’t do anything for you if you're an immigrant living in this country and you're undocumented. I understand why that is the case from a political perspective, but we should be clear that this is a first step. It’s a good first step from where we need to be, but it’s a first step.
I mean, 3.3 million people filed for unemployment yesterday. That was an extraordinary order of magnitude, higher than the highest at the peak of unemployment during The Great Recession. This shows that the people who are losing their jobs are low income people who already had no savings. These are people who were already living on the margins, and these will be the people who are going to be affected hardest by this.
I read something you wrote recently that addressed the mental health component of all of this. You wrote, “first it's important to disseminate accurate up to date information on COVID19 to counter the misinformation that can lead to undue fear.” What pieces of information right now are critical? Beyond what I feel is necessary, I’m also consuming a lot of information that might not be. When is it enough?
I think it's important to try to keep yourself informed, but I also think there's been a lot of information, much of it inaccurate.
People need to be sure they are listening to sources they trust, and sources that are reliable. It is up to the individual in some respects to identify sources that they consider to be reliable. But I would encourage people to, as much as possible, not filter through information, to go to sources whose biases they understand, and who they think are reliable and who are trying to help educate the public through a combination of science and reason, with a very clear moral purpose to generate health for all.
Do you have recommendations on an individual level for mitigating the difficult mental health components that come with this?
Yes, absolutely. I think that, number one, people need to stay connected in this time of physically and socially distancing as much as possible. People need to maintain a community of their friends, their loved ones, and their workplaces. Number two, people need to be educated and realize that symptoms of depression and anxiety are common at a time like this. We need to be educated and aware of the challenges that those symptoms can pose. Number three, people need to be able to go to a health provider to get help if their symptoms start to impair their ability to get on with their life. Number four, I think people need to maintain healthy routines. People need to continue to exercise, to continue to maintain daily routines.
You spend your life in public health, do you see a way out of this? I think a lot of the anxiety is that it's all indefinite.
I mean, by the grace of God we will emerge from this and we will survive. I think that the key question is how we deal with the long term consequences of this. The long term consequences are going to be very much consequences of the economic slowdown and the people who are affected by that. Number two, how do we make sure that when the next pandemic hits, and it's good to remember that there will be a next pandemic, right? There will be. The question will be have we learned our lesson and built a world that's better able to handle a crisis.
I would go back to these two pillars that spoke about at the beginning of this interview. One is the, the actual public health mechanics of dealing with the pandmeic. And number two is creating a world that is resilient that has the pieces in place so that we are healthier. Those are the questions.
Right. And you're hopeful?
I prefer optimism. I think optimism is a form of resistance in the face of dark times. So yes, I am optimistic.