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The Development of Water Resources Planning in the United States From Planning Methods in an Era of Challenge and Change The Development of Water Resources Planning in the United States from the Reclamation Act of 1902 to the Principles and Standards of 1973 An Assessment Based on Original Sources By David C. Major and Eugene Z. Stakhiv IWR Maass-White Series The Institute for Water Resources (IWR) is a U.S. Army Corps of Engineers (USACE) Field Operating Activity located within the Washington DC National Capital Region (NCR), in Alexandria, Virginia and with satellite centers in New Orleans, LA; Davis, CA; Denver, CO; and Pittsburg, PA. IWR was created in 1969 to analyze and anticipate changing water resources management conditions, and to develop planning methods and analytical tools to address economic, social, institutional, and environmental needs in water resources planning and policy. Since its inception, IWR has been a leader in the development of strategies and tools for planning and executing the USACE water resources planning and water management programs. IWR strives to improve the performance of the USACE water resources program by examining water resources problems and offering practical solutions through a wide variety of technology transfer mechanisms. In addition to hosting and leading USACE participation in national forums, these include the production of white papers, reports, workshops, training courses, guidance and manuals of practice; the development of new planning, socio- economic, and risk-based decision-support methodologies, improved hydrologic engineering methods and software tools; and the management of national waterborne commerce statistics and other Civil Works information systems. IWR serves as the USACE expertise center for integrated water resources planning and management; hydrologic engineering; collaborative planning and environmental conflict resolution; and waterborne commerce data and marine transportation systems. The Institute’s Hydrologic Engineering Center (HEC), located in Davis, CA specializes in the development, documentation, training, and application of hydrologic engineering and hydrologic models. IWR’s Navigation and Civil Works Decision Support Center (NDC) and its Waterborne Commerce Statistical Center (WCSC) in New Orleans, LA, is the Corps data collection organization for waterborne commerce, vessel characteristics, port facilities, dredging information, and information on navigation locks. IWR’s Risk Management enter is a center of expertise whose mission is to manage and assess risks for dams and levee systems across USACE, to support dam and levee safety activities throughout USACE, and to develop policies, methods, tools, and systems to enhance those activities. Other enterprise centers at the Institute’s NCR office include the International Center for Integrated Water Resources Management (ICIWaRM), under the auspices of UNESCO, which is a distributed, intergovernmental center established in partnership with various Universities and non-Government organizations; and the Conflict Resolution and Public Participation Center of Expertise, which includes a focus on both the processes associated with conflict resolution and the integration of public participation techniques with decision support and technical modeling. The Institute plays a prominent role within a number of the USACE technical Communities of Practice (CoP), including the Economics CoP. The Corps Chief Economist is resident at the Institute, along with a critical mass of economists, sociologists and geographers specializing in water and natural resources investment decision support analysis and multi-criteria tradeoff techniques. The Director of IWR is Dr. Joe Manous. Additional information on IWR can be found at: http://www.iwr.usace.army.mil. IWR’s NCR mailing address is: U.S. Army Engineer Institute for Water Resources 7701 Telegraph Road, 2nd Floor Casey Building Alexandria, VA 22315-3868 The Development of Water Resources Planning in the United States from the Reclamation Act of 1902 to the Principles and Standards of 1973 An Assessment Based on Original Sources David C. Major and Eugene Z. Stakhiv © 2018 David C. Major and Eugene Z. Stakhiv. No copyrighted part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical or photocopying, recording or otherwise without prior written permission of the publisher. Library of Congress Control Number: 2019900025 ISBN 978-0-578-44105-4 Published by IWR Press Casey Building 7701 Telegraph Road Alexandria VA 22315 The Maass-White Library Series in Water Planning and Management, Volume 5 Interior design by Patricia Hart Contents The Maass-White Library Series v Preface ix Acknowledgments xi Chapter 1 Introduction 1 Section I: Three Key Laws Prior to World War II 5 Chapter 2 The Reclamation Act of 1902 7 Planning Methods and Procedures 9 Development and Results of Reclamation Programs 11 Perspectives 16 Chapter 3 The 308 Reports 19 Authorization and Reports 19 Plans and Planning Methods 22 Perspectives 28 Chapter 4 The Flood Control Act of 1936 31 Flood Control as a Federal Responsibility 31 Benefits and Costs 33 Local Contributions 34 Projects 35 Perspectives 35 Section II: The Classic Model of River Basin Planning 39 Chapter 5 Gilbert White, Human Adjustment to Floods 41 The Context 42 Content and Approach 44 Perspectives 47 Chapter 6 Arthur Maass, Muddy Waters 51 The Ickes Foreword 52 Muddy Waters 54 Perspectives 60 Maass and White 61 Chapter 7 The Green Book 63 The Economics of Project Evaluation 65 Objectives 68 Perspectives 69 Chapter 8 John V. Krutilla and Otto Eckstein, Multiple Purpose River Development 71 Economic Analysis and the Economics of River Basin Development 72 The Cost of Capital 72 Case Studies: Economics 73 Case Studies: Distribution of Costs and Gains 77 Perspectives 81 iii Chapter 9 Delaware River Basin Report 83 Planning Methods 84 Recommendations and Results 92 Perspectives 97 Section III: Development of New Methods 99 Chapter 10 The U.S. President’s Water Resources Council Report 101 Objectives and Project Formulation 104 Perspectives 108 Chapter 11 Arthur Maass et al., Design of Water-Resource Systems 111 Research of the Harvard Water Program 112 New Investment Criteria 113 Conventional Techniques, Mathematical Modeling, and the Design Process 115 Political Decision Making 119 Perspectives 120 Chapter 12 The North Atlantic Regional Water Resources Study 123 Institutional Arrangements 125 Regional Subdivisions for Planning 126 Planning Period and Forecast Years 127 New Methods: Multiple Objectives 128 New Methods: Mathematical Models 130 Needs, Sources, and Devices 133 Forecasts and Recommendations 134 Perspectives 136 Chapter 13 The Principles and Standards, 1973 139 Background 139 Authority 141 Objectives and Criteria 142 Perspectives 148 Section IV: Perspectives 151 Chapter 14 A Summing Up and Conclusions 153 References 157 Index 169 iv Foreword The Maass-White Library Series in Water Planning and Management Robert A. Pietrowski, Former Director, Institute for Water Resources I’m truly delighted to share my thoughts on this volume, the fifth in the series of books published by the U.S. Army Corps of Engineers’ (USACE) Institute for Water Resources (IWR) in its Maass-White Library Series in Water Planning and Management. The Maass-White Library Series is devoted to the advancement of water resources planning and management practices along the continuum that was broadly influenced by the pioneering research of Drs. Arthur Maass and Gilbert White. USACE, through its Office of History and IWR, is honored to serve as the custodian and repository for the personal libraries of these two great scholars, and the Institute was most fortunate to have both Arthur Maass and Gilbert White actively participate in the dedication ceremony of the Maass-White Library at IWR in 2001. The true measure of the contributions of Professors Maass and White is that their influence reached far outside their classrooms and academia. In fact, the intellectual foundations provided by Drs. Maass and White and other 20th century scholars have proved essential to the maturation of the practice of planning and managing water resources both in the U.S. and around the world. It speaks to the foresight of their scholarship that the underlying principles that flowed from their collective works remain highly relevant today, and which, to Maass and White’s credit, were gradually adopted and then applied by several generations of water resources practitioners, policymakers and decision-leaders over the last half-century. One benefit of their interaction with the engineering profession and the public sector was the profound influence that v Professors Maass and White have had on the way that USACE embraced change during the evolution of Federal water management decision-making in the decades following their seminal works, which culminated in the Federal Government’s adoption of the United States Water Resourcees Council (WRC) Principles and Standards (P&S) [1973], and the concurrent integration of the P&S into the Corps national policy guidance for all planning studies. One clear example was the immediate implementation of the principles in the North Atlantic Regional (NAR) [1972] and Northeastern Water Supply (NEWS) studies [1976], which the Corps conducted, as both Maass and White were on the oversight coordinating committees for both studies. Not only is this a tribute to the legacy of these two scholars -- and to the past leadership of USACE -- but significantly,
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