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Water Allocation in the Kiamath Unbound issue Does not circulate — Special Report 1037 Reprinted April 2004 $25.00 WaterAllocation in the Kiamath Reclamation Project, 2001: An Assessment of Natural Resource, Economic, Social, and Institutional Issues with a Focus on the Upper Klainath Basin Oregon State UNIVERSITY Service Cabfovma Ordering instructions Additional copies of this publication are available for a charge of $25.00 plus shipping and handling (payable to Oregon State University). Order from: Publication Orders Extension & Station Communications Oregon State University 422 Kerr Administration Corvallis, OR 97331-21 19 Fax: 541-737-0817 E-mail: [email protected] Phone: 541-737-2513 World Wide Web You can access this publication at: http://eesc.oregonstate.edu/ldamath Oregon State University Extension Service SpecialReport 1037 Reprinted April 2004 WaterAllocation in the Klamath Reclamation Project, 2001: An Assessment of Natural Resource, Economic, Social, and Institutional Issues with a Focus on the Upper Kiamath Basin William S. Braunworth, Jr. Assistant Extension Agriculture Program Leader Oregon State University Teresa Welch Publications Editor Oregon State University Ron Hathaway Extension agriculture faculty, Klamath County Oregon State University OregonState Exte!lsuon UNIVERSITY Service Authors WilliamBoggess, department head, Department of William K. Jaeger, associate professor of agricul- Agricultural and Resource Economics, Oregon tural and resource economics and Extension State University agricultural and resource policy specialist, Oregon State University William S. Braunworth, Jr., assistant Extension agricultural program leader, Oregon State Robert L. Jarvis, professor of fisheries and University wildlife, Oregon State University Susan Burke, researcher, Department of Agricul- Denise Lach, codirector, Center for Water and tural and Resource Economics, Oregon State Environmental Sustainability, Oregon State University University Harry L. Carlson, superintendent/farm advisor, Kerry Locke, Extension agriculture faculty, University of California Intermountain Research Klamath County, Oregon State University and Extension Center Jeff Manning, graduate student, Department of Patty Case, Extension family and community Fisheries and Wildlife, Oregon State University development faculty, Kiamath County, Oregon State University Reed Marbut, Oregon Water Resources Department Emery Castle, director, Rural Studies Program, Oregon State University Douglas F. Markie, professor of fisheries, Oregon State University Donald R. Clark, former research agronomist Kiamath Experiment Station, Oregon State UniversityLeslie Richards, assistant professor, Department of Human Development and Family Sciences, Michael S. Cooperman, graduate research assis- Oregon State University tant, Department of Fisheries and Wildlife, Oregon State University Jeff Romm, professor, Division of Resource Institutions, Policy, and Management, College of James Cornelius, professor of agricultural and Natural Resources, University of California resource economics and Extension economist, Berkeley Oregon State University Kenneth A. Rykbost, superintendent, Klamath Corinne Corson, former faculty research assistant, Experiment Station, and professor, Department Department of Human Development and Family of Crop and Soil Science, Oregon State Sciences, Oregon State University University W. Daniel Edge, department head, Depart- Bruce Sorte, graduate student, Department of ment of Fisheries and Wildlife, Oregon State Agricultural and Resource Economics, Oregon University State University Guillermo Giannico, Extension fisheries Rodney Todd, Extension agriculture faculty, specialist, Oregon State University Klamath County, Oregon State University Ron Hathaway, Extension agriculture faculty and Bruce Weber, professor of agricultural and staff chair, Klamath County, Oregon State resource economics and Extension economist, University Oregon State University Christopher Heider, former faculty research Teresa Welch, Extension publications editor, assistant, Department of Fisheries and Wildlife, Oregon State University Oregon State University George Woodward, Division of Resource Institu- tions, Policy, and Management, College of Natural Resources, University of California Berkeley ii Contents Introduction 1 William S. Braunworth, J, and Emery Castle Key Lessons Learned 7 Teresa Welch Sunmiary 11 Part 1.Setting the Stage 1 Background 31 Ron Hathaway and Teresa Welch 2 An Overview of the Kiamath Reclamation Project and Related Upper Kiamath Basin Hydrology 45 Kenneth A. Rykbost and Rodney Thdd 3 Legal Aspects of Upper Kiamath Basin Water Allocation 75 Reed Marbut 4 Understanding Science 91 Douglas F Markie Part2. Suckers and Coho Salmon 5Relationships between Lost River and Shortnose Sucker Biology and Management of Upper Kiamath Lake 93 Douglas F Markle and Michael S. Cooperman 6 Coho Salmon and Water Management in the Klamath Basin 119 Guillerino Giannico and Christopher Heider Part 3.Agriculture 7Soil Resources in the Klamath Reclamation Project 153 Harry L. Carison, Donald R. Clark, Kerry Locke, and Rodney Todd 8 Effects of the 2001 Water Allocation Decisions on the Agricultural Landscape and Crop Production in the Klamath Reclamation Project 163 Harry L Carison and Rodney Todd Part4. Communities 9Effects of the 2001 Water Allocation Decisions on Project-area Communities 177 Denise Lath, Leslie Richanis, Corinne Corson, and Case Part5. Economics 10Preface to the Economics Chapters 209 William K Jaeger and Bruce Weber 11 The Upper Kiamath Basin Economy and the Role of Agriculture 213 Bruce Weber and Bruce Sorte 12 The Effects of Water Allocation Decisions on Crop Revenue in the Kiamath Reclamation Project 231 Susan Burke 111 13 Impact of the 2001 Klamath Project Operations Plan on the Economy of the Upper Kiamath Basin 251 Bruce Webe, James Cornelius, Bruce Sorte, and William Boggess 14 What Actually Happened in 2001? A Comparison of Estimated Impacts and Reported Outcomes of the Irrigation Curtailment in the Upper Klamath Basin 265 William K Jaeger Part6. Wildlife 15Relationships between Bald Eagle Biology and Federal Environmental Decisions on the Klamath Reclamation Project 285 Jeff Manning and W. Daniel Edge 16 Effects on Waterfowl of the 2001 Water Allocation Decisions 313 Robert L Jarvis 17 Relationships between Mule Deer Biology and the 2001 Federal Environmental Decisions on the Klamath Reclamation Project 327 Jeff Manning and W. Daniel Edge Part7. Public Policy 18A Policy Assessment of the 2001 Klamath Reclamation Project Water Allocation Decisions 337 George Woodward and Jeff Romm 19 Water Allocation Alternatives for the Upper Kiamath Basin 365 William K Jaeger 20 A Synthesis: Policy Analysis and Public Institutions 393 Emery Castle iv Acknowledgments Wegratefully acknowledge the time and effort of the many people who reviewed drafts of this report. Their comments, suggestions, and insights have greatly strengthened the final report. We especially thank Allen Foreman (The Klamath Tribes, Chiloquin, OR), Dan Keppen (Kiamath Water Users Association), Dennis Lynch (U.S. Geological Survey, Portland, OR), Rodney Mclnnis (National Marine Fisheries Service, Long Beach, CA), Rip Shively (U.S. Geological Survey, Klamath Falls, OR), Marshall Staunton (Klamath County farmer), and the Yurok Tribe. We also thank Tom Gallagher, former associate professor of forest resources and leadership specialist, Oregon State University Extension Service, for his work in coordination and facilitation of this project, and Andrea Dailey, publications editor, Oregon State University Extension Service, for proofreading. v Water Allocation in the Klamath Reclamation Project, 2001: An Assessment of Natural Resource, Economic, Social, and Institutional Issues with a Focus on the Upper Klamath Basin Oregon State University •Universityof California Introduction WilliamS. Braunworth, and Emery Castle In April 2001, the water status quo in the Klamath Basin, these costs include direct Upper Klamath Basin was turned on its head. costs of improving fish habitat and indirect costs Decisions intended to conserve endangered and incurred when irrigation water is denied to threatened fish, combined with a severe drought, farmers. In 2001, costs were immediate and resulted in curtailment of 2001 irrigation water measurable. deliveries to much of the Kiamath Reclamation Clearly, the way water is allocated in the Project. One decision required a minimum water Basin has great significance for the ecological, level for Upper Kiamath Lake. Another required economic, and social future of the area. Thus, it a minimum discharge into the lower Klamath is no surprise that the events of 2001 generated River. The decisions stemmed from years of great controversy. Sharp differences of opinion concern about water quality, habitat loss, and exist among people residing in the area, as well declining populations of three species of fish— as among others who have an interest in the Lost River and shortnose suckers in Upper Basin. These differences of opinion include Klamath Lake and coho salmon in the lower debates over historical interpretations, scientific Klamath River. data, and legal standards. For example, was the The story is partly one of shifting costs from year 2001 unique, or are similar conditions likely one segment of society to another. As a species to arise in 1, 2, or 3 years in 10? What is the declines, there often are costs to people who relation of water quantity to water quality in fish previously benefited from
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