The Board of Water Resources acknowledges the following staff members of the Utah Division of Water Resources for their dedication and valuable contribution to this document:

Larry Anderson	- Director
Dennis Strong	- Deputy Director
Paul Gillette	- Former Deputy Director (Retired)
Lloyd Austin	- Assistant Director
Eric Millis	- Section Chief, River Basin Planning (Project Manager)
Todd Stonely	- Engineer, River Basin Planning (Primary Author)
Eric Klotz	- Section Chief, Resource Inventories and Special Studies
Eric Edgley	- GIS Specialist, Resource Inventories and Special Studies
Lyle Summers	- Section Chief, Water Education and Conservation
Norm Stauffer	- Section Chief, Hydrology and Computer Applications
Todd Adams	- New Section Chief, Hydrology and Computer Applications
Ben Everitt	- Section Chief, Geologic Investigation

The board also extends its gratitude to members of the Utah State Water Plan Coordinating Committee who contributed many hours to review the document for accuracy, provide invaluable insight and data, or otherwise lend their support. The board also extends a special thanks to the many individuals who took time to attend the public meetings held throughout the state in conjunction with this document. These individuals represented a broad range of interests including water professionals, government and civic leaders, environmental groups, water-related businesses and concerned citizens. Many of these people provided the division with valuable written and oral comments, all of which have been carefully considered and incorporated where necessary. Finally, the board also acknowledges the kindness of the many photographers who granted permission to use their photos in this publication. Without all these contributions, the product before you would be incomplete.

One of the major responsibilities of the Utah Division of Water Resources is comprehensive water planning. Over the past decade and a half, the division has prepared a series of documents under the title "Utah State Water Plan." This included a statewide water plan and an individual water plan for each of the state's eleven major hydrologic river basins. The preparation of these plans involved several major data collection programs as well as extensive inter-agency and public outreach efforts. Much was learned through this process; state, local, and federal water planners and managers obtained valuable information for use in their programs and activities, and the public received the opportunity to provide meaningful input in improving the state's water resources stewardship.

This document is the latest in the "Utah State Water Plan" series and is intended to guide and direct Utah's water-related planning and management into the next century. It summarizes key data obtained through the previous water planning documents, introduces new data where available, and addresses issues of importance to all future water planning efforts. Where possible, it identifies water use trends and makes projections of water use. The document also explores various means of meeting future water demands and identifies important issues that need to be considered when making water-related decisions. Water managers and planners will find the data, insights and direction provided by this document valuable in their efforts. The general public will find this document easy to read and will discover many useful facts and information helpful in understanding Utah's water resources. Both audiences will appreciate the real-life, Utah examples highlighted in sidebars and photographs. Although the use of technical words is avoided wherever possible, an extensive glossary illuminates exact usage of terminology that may be unfamiliar.

ACKNOWLEDGEMENTS
PREFACE
LIST OF FIGURES
LIST OF TABLES
SIDEBARS
EXECUTIVE SUMMARY

CHAPTER - 1  INTRODUCTION: WATER RESOURCES IN UTAH
      A Vision of Utah's Water Future: Supporting Growth and Preserving Our Environment and Culture
      Purpose of this Document
      The Significance of Water Resources to Utah
      State Water Planning: Fulfilling a Stewardship

CHAPTER - 2  WATER SUPPLY
      Climatological Influences
      Average Annual Water Supply
      Developable Water Supply
      Variability of Water Supply

CHAPTER - 3  POPULATION AND WATER USE TRENDS AND PROJECTIONS
      The 21st Century: A Promising Era of Growth and Prosperity
      Present and Future Uses of Utah's Water Resources

CHAPTER - 4  WATER CONSERVATION
      The Benefits of Water Conservation
      Utah's Water Conservation Effort
      Water Conservation Measures
      Water Conservation Education: Critical to Long-term Success

CHAPTER - 5  WATER TRANSFERS AND EFFICIENT MANAGEMENT OF DEVELOPED SUPPLIES
      Agricultural Water Transfers
      Agricultural Water-Use Efficiency
      Conjunctive Use of Surface and Ground Water Supplies
      Aquifer Storage and Recovery
      Secondary Water Systems
      Cooperative Water Operating Agreements
      Water Reuse

CHAPTER - 6  WATER DEVELOPMENT
      Water Development Projects
      Weather Modification
      Upgrading and Enhancing Existing Infrastructure
      Funding

CHAPTER - 7  WATER QUALITY, THE ENVIRONMENT AND OTHER CONSIDERATIONS
      Water Quality
      The Environment
      Other Considerations

CHAPTER - 8  CONCLUSION: PUTTING THE PIECES TOGETHER
      Local Stakeholders: The Resources' Best Stewards
      The Role of Government: Providing Direction and Assistance
      Meeting the Challenges of the Future through Cooperative Efforts

NOTES
GLOSSARY
INDEX

Figure 1    Basin Plan Areas and Hydrologic River Basins
Figure 2    Average Annual Precipitation in the United States
Figure 3    Average Annual Precipitation in Utah
Figure 4    State of Utah Average Annual Streamflow
Figure 5    Areas of Significant Ground Water Development in Utah
Figure 6    Water Supply Variability of Selected Areas in Utah
Figure 7    Population Trend and Projection
Figure 8    Utah's Population Distribution and the Greater Wasatch Area
Figure 9    Per Capita Water Use of Public Water Supplies in the United States
Figure 10  Meeting Total M&I Demand in 2050 by Basin
Figure 11  Breakdown of Public Supply Water Use Including Secondary Water
Figure 12  Residential Outdoor Water Use in Utah by Basin
Figure 13  Major Future Water Development Projects in Utah
Figure 14  Cloud Seeding Process
Figure 15  Cloud Seeding Project Areas

Table 1    Average Annual Precipitation by Basin
Table 2    Areas of Significant Ground Water Development in Utah
Table 3    Estimated Statewide Water Budget
Table 4    Estimated Water Supply by Basin
Table 5    Estimated Developable Water Supply by Basin
Table 6    Present and Projected Irrigated Land and Agricultural Water Use by Basin
Table 7    Present and Projected Total M&I Water Use by Basin
Table 8    Public Community System and Secondary System Water Use (gpcd)
Table 9    Water Prices of Various Western Cities
Table 10  Example Summary of a Customer's Ascending Block Rate Bill
Table 11  Existing and Proposed Water Reuse Projects in Utah

Utah’s water resources play an integral role in the life of every Utahn. From a morning shower to a weekend trip down the Colorado River, water is interwoven into nearly every activity. Use of Utah’s water resources has allowed the rugged landscape to be settled, has provided Utahns with numerous employment and recreational opportunities, and has made possible a high quality of life. The far-reaching vision of Utah’s leaders, coupled with modern engineering technology, has allowed Utah’s water supply to be harnessed and used on a large scale. Water has been made so readily available, in fact, that its relative scarcity in Utah’s semi-arid climate is often overlooked. This reality must be fully recognized and appropriate decisions made in order to provide sufficient water for Utah's future population.

Utah’s Water Resources: Planning for the Future emphasizes the importance of careful planning and wise management in meeting future needs. It estimates Utah’s available water supply, makes projections of water need, explores how these needs will most efficiently be met, and discusses other important values, including water quality and the environment. This document will be a useful guide and reference to local water planners and managers as they strive to meet the many water challenges facing Utah. It will also be of help to those in the general public who are interested in making greater contributions to water-related decisions being made by local, state and federal government officials.

The following paragraphs summarize the main points of each chapter:

In order to meet future needs brought about by growth, Utah must promote effective water conservation and water management technologies. This, along with carefully planned water developments, will secure sufficient water for the future.

Utah’s institutional structure is well prepared for the challenges at hand. Through careful coordination and cooperation, Utah’s water needs will be provided for and the integrity and beauty of the environment will be preserved.

While most of Utah’s available water supply (7.3 million acre-feet per year) is already used, the Division of Water Resources estimates that 790,000 acre-feet per year can yet be developed based on current legal, political, economic and environmental constraints. Much of this developable water supply (420,000 acre-feet per year) is located in the Colorado River drainage, away from the large population centers along the Wasatch Front. The Bear River drainage, with approximately 250,000 acre-feet per year of developable water available to Utah, represents the most significant source of water available to these areas.

Despite the rapid growth in urban water demands, agricultural irrigation will continue to be the primary use of Utah’s developed water supply. These diversions will slowly decline from current levels near 4.6 million acre-feet per year to about 4.2 million acre-feet per year as growth in the M&I sector displaces traditional agricultural uses.

In addition to the changes in agricultural and M&I water demands, environmental and recreational uses of Utah’s water will continue to play important roles in the future. Pressure to use water to sustain important environmental values and recreational purposes will increase.

The Division of Water Resources has also set an M&I water conservation goal to reduce the per capita demand on public water supplies 25 percent by the year 2050. This equates to an annual volume of about 400,000 acre-feet. This goal will be achieved as water suppliers implement various conservation measures and programs that have proved effective. Among these are incentive pricing, outdoor watering and landscape guidelines and ordinances, water audits, meter installation on all water connections, rebates and other incentive programs, and leak detection and repair programs. In addition to these measures, a strong water conservation education program is key to long term success.

• Agricultural Water Transfers: converting agricultural water to M&I uses as the associated land changes from agricultural to urban.
• Agricultural Water-use Efficiency: implementing improved operating practices and irrigation technology to improve water use efficiency.
• Conjunctive Use: using surface and ground water supplies together instead of separately to optimize beneficial use.
• Aquifer Storage and Recovery: storing excess surface water in ground water reservoirs and retrieving it later.
• Secondary Water Systems: piping untreated water separately for use on outdoor landscapes, thereby preserving treated water for potable purposes.
• Cooperative Water Operating Agreements: contractual agreements between water suppliers to better meet needs within each system, often using facilities and resources jointly to meet peak or emergency demands.
• Water Reuse: recycling effluent from wastewater treatment facilities.

The completed Central Utah Project will help meet the needs of the Wasatch Front. The Bear River Project and Lake Powell Pipeline, currently in the feasibility stages, are two major projects that are being investigated to help meet the M&I needs of the Wasatch Front, and Washington and Kane counties, respectively. Numerous smaller projects will also be needed to satisfy the demands of growth in other areas.

One option that has long been recognized as a means of enhancing the water supply is a form of weather modification known as cloud seeding. Areas in Utah that actively practice cloud seeding have realized a 7 20 percent increase in April 1 snow water content, and a combined total increase in runoff of approximately 13 percent. The estimated cost of water developed in these areas by cloud seeding is about one dollar per acre-foot.

In addition to new projects and weather modification, much of the existing infrastructure is old and not of sufficient capacity to meet projected needs. These systems will need to be upgraded and expanded as necessary. Water-related funding should keep pace with these needs so systems can operate efficiently and provide necessary safety to customers.

Water quality topics that are of particular concern include: implementing the Environmental Protection Agency’s new Total Maximum Daily Load (TMDL) rules; maintaining the integrity of riparian and flood plain corridors amidst increasing development pressure; regulating storm water discharges within urban areas; analyzing and controlling the effects of nutrient loading on Utah’s rivers and water bodies; managing animal feedlot operations; and dealing with high septic tank density problems.

Environmental topics include: protecting and restoring endangered species to sustainable populations; preserving wetlands from loss or degradation; maintaining instream flows for fish and wildlife, recreational and other purposes; and analyzing the impacts of wilderness and wild and scenic river designation on the ability to access and use certain water resources.

Other considerations that are briefly discussed in this chapter include land management and water yield, reserved water rights, and the Colorado River. Careful consideration of these and other issues at the local level will help assure the success of local projects.

The future of Utah and its precious water resources is bright. Through cooperation with state, federal and local interests, local leaders will be able to meet the growing water needs within their communities while preserving the quality and integrity of their natural surroundings.

The greatest increase in future water demands will be the result of population growth. These water needs will occur primarily in the municipal and industrial sector, of which residential use is a significant component. Although these urban water demands will drive many future water decisions, Utah need not forsake its rural heritage to satisfy these needs. The conversion of agricultural water supplies to municipal and industrial uses as farm land is urbanized will occur to satisfy some future water needs, particularly along the Wasatch Front. However, because these conversions will not always be sufficient to satisfy future demands, other means of securing adequate water supplies are necessary.

In order to meet all demands on Utah’s water resources, a cooperative effort is needed to better use existing water supplies. Utah must promote water conservation measures and innovative water management technologies. Although this effort will forestall the need for costly new water developments, these measures alone will not satisfy all of Utah’s future needs. Therefore, new water development will be needed. The timing and size of this development will depend on the ability of water conservation and other water-saving strategies to reduce water demand.

In addition to securing adequate water for the future, water planners and managers need to expand their planning and management efforts to effectively address water quality, environmental and other values. Water agencies and institutions must fully integrate strategies and policies into their operations to address these issues. An important aspect of this endeavor will be to coordinate federal and state water resources efforts with localized needs. Proper coordination will allow solutions to be tailored to local conditions and help maintain a constructive and open dialog among all water resources stakeholders.

Native inhabitants of Utah depended upon water resources and associated habitat and wildlife to sustain their way of life. Some of these American Indians even dammed and diverted water for small-scale irrigation. Later, with the arrival of white settlers, Utah’s water resources were increasingly utilized. The arid climate and rugged terrain were new to these settlers. Not only was harnessing the available water resources essential for the growth of life sustaining crops, but it was necessary to grow the attractive trees and decorative plants they desired in their immediate surroundings. To them, making the desert “blossom as the rose" represented an ideology, a literal fulfillment of prophecy. The success of these determined pioneers at irrigating and settling the West helped form the foundations upon which the government’s future reclamation and settlement policies were formed.

The quality of life that Utah’s citizens now enjoy is in large part due to the community efforts and perseverance of these early settlers and the insightful planning of the generations that followed. A well-established infrastructure, coupled with the diversity and ease of access to its natural wonders, makes Utah a particularly desirable place to live. These conditions have contributed to Utah’s rapid growth in the past and will continue to do so in the future. As a result of this growth, the strains placed upon Utah’s water resources will continue to intensify.

Utah’s Water Planning History

Organized water resources management and planning activities have a longer history in Utah than in most other western states. Beginning in 1847 with the settlement of the Salt Lake Valley, groups were sent out by Brigham Young, president of The Church of Jesus Christ of Latter-day Saints, to settle what would later become the state of Utah and the surrounding region. Because of the harshness of the terrain and climate, the success of these communities relied heavily on reliable water sources. Before settlement of any area occurred, an advance company was typically sent to survey the land and identify potential water supplies. Once a promising site was located, a group of settlers was organized and leaders appointed. These leaders organized water development crews and oversaw water appropriations for the benefit of the entire community.

Gradually, government entities assumed a larger role in water resources management and planning. Today, Utah has an established legal and institutional structure to guide the comprehensive planning and management of its water resources (see sidebar).

In the early 1960s, the state began to focus more attention on preparing a statewide water plan to guide Utah’s water resources development through the end of the century. In 1963, the Utah Water and Power Board along with Utah State University published a document entitled, “Developing a State Water Plan: Utah’s Water Resources–Problems and Needs–a Challenge." This document initiated a statewide reconnaissance of Utah’s water resources and provided a significant building block for future state water planning. With the creation of the Board of Water Resources and Division of Water Resources in 1967, Utah’s dedication to comprehensive water planning was again emphasized.

Between 1972 and 1985, the Division of Water Resources continued its comprehensive water planning effort and published a series of documents entitled, “The State of Utah Water."¹ These reports provided refined water supply and use estimates. They also explored a wide range of possible uses of Utah’s remaining unused water supplies including the potential to redistribute water resources through large scale interbasin transfers and the development of water resources for mineral extraction.

The 1990 State Water Plan and Subsequent River Basin Plans

A landmark publication that resulted from state water planning efforts was the 1990 Utah State Water Plan. This document was a comprehensive water plan and resource inventory for the state and provided a basis for more detailed planning at the hydrologic river basin level. Subsequent plans for each of the state’s basin plan areas, shown in Figure 1, have been completed.² These river basin plans inventory basin water supplies, provide present and future water use information, and address problems and issues facing local water resources stakeholders. These plans are being used by local and statewide planners to make informed water resources decisions.

The Current Plan

As part of the state water planning effort that produced the 1990 Utah State Water Plan, a list of guiding principles was created. Since that time, these principles have been updated and revised to reflect the changing needs of state water planning. The following guiding principles were used to develop this document:

• All waters, whether surface or subsurface, are held in trust by the state as public property and their use is subject to rights administered by the State Engineer.
• Water rights owners are entitled to transfer their rights under free market conditions. Any change in place or nature of use is subject to approval by the State Engineer.
• The state of Utah’s role is to set policy, provide assistance and protect statewide water resource interests.
• The responsibility for making many local decisions regarding water resources resides with local leaders.
• Educating the public on water resources issues and seeking their input in the decision-making process is vital to effective planning, management and development.
• Long-term water planning will help ensure sufficient water supplies when and where needed for Utah’s growing population.
• Local, state and federal water resources planning and management activities should be coordinated to effect cooperation and minimize duplication.
• The maintenance of water quality within the state’s water quality standards will help sustain all present and future uses of Utah’s water resources.
• Water conservation and efficient management of existing water supplies are needed to help satisfy future water demands in the most economical and timely fashion.
• Water development, based on sound engineering, economic and environmental principles, will help meet future water needs.
• Recreation, aesthetic and environmental uses of water should be included in water planning, management and development activities.

In order to make good water development and management decisions, water quality, environmental and other values need to be properly addressed. The state must assume a leading role in handling these unique challenges and assist local stakeholders in formulating working solutions that are in compliance with state and federal laws. Coordination and cooperation between local, state and federal stakeholders, on these and other issues, will help meet the water needs of Utah’s citizens in an efficient and timely manner.

Utah receives an average of 13 inches of precipitation annually. With the exception of its neighbor to the west, Nevada, this is the lowest annual precipitation received by any of the 50 states (see Figure 2). Due to other climatological factors, only a small portion of this precipitation makes its way into Utah’s waterways and aquifers. The result is a water supply that is limited. In addition these climatological factors vary significantly from year to year resulting in a water supply that is not only limited, but also unpredictable.

This chapter discusses how climate influences Utah’s water supply and expresses the available water supply in terms of long-term averages. The portion of this supply that is still available for development is then estimated. Finally, the chapter concludes with a brief discussion of drought and flooding to put in perspective the constant variability of the water supply.

Although differences in latitude play a part in the diversity of Utah’s smaller microclimates, the determining factor is elevation. Precipitation and temperature vary almost in proportion to changes in elevation. Precipitation rises with increases in elevation from a low of about five inches in the lowlands to more than 60 inches on some peaks (see Figure 3). Temperature is similarly governed by elevation, with a typical 3 degrees Fahrenheit decrease for every 1,000 foot rise.¹

Precipitation

Most of the precipitation falls on the mountainous regions as snow. This snow is extremely important to Utah’s water supply because it functions as a storage reservoir, releasing the water into streams and aquifers as temperatures rise. Depending on surface conditions of the soil and the rate of melting, the precipitation that is not evaporated or transpired through vegetation flows directly into streams or it seeps into the soil. While the portion of the precipitation that makes its way to surface waterways moves very quickly, the portion that percolates into the ground moves much more slowly. Topography, soil characteristics, geologic configurations and other factors affect the path and movement of this ground water. At some lower elevation, it may come to the surface as a natural spring or seep, discharge into a lake or river, or become part of the aquifer storage in the lower valleys.

	TABLE 1 Average Annual Precipitation by Basin
	Basin	Avg. Precipitation (inches/yr)*
	Weber River	26
	Jordan River	23
	Bear River	22
	Utah Lake	22
	Kanab Creek/Virgin River	17
	Uintah	15
	Sevier River	14
	Cedar/Beaver	13
	Southeast Colorado River	11
	West Colorado River	10
	West Desert	10
	STATE AVERAGE†	13
	* Values based on the 1961-1990 period of record. † Average is calculated by weighted land areas.

Although precipitation varies significantly from region to region throughout the state, it averages about 13 inches or 61.5 million acre-feet per year (an acre-foot is enough to cover an acre of land with one foot of water, or to satisfy the needs of a family of four for one year). Table 1 lists the average annual precipitation values for each of the state’s 11 hydrologic river basins. As shown, the Weber River Basin receives the highest amount of precipitation, about 26 inches per year. The West Desert and West Colorado River basins receive the least, about 10 inches per year. It comes as no surprise that the majority of the state’s population (about 89 percent) is located in the five basins receiving the most precipitation.

Evaporation and Transpiration

Precipitation is the process that moves water from the atmosphere to the surface of the earth. Evaporation returns some of this water to the atmosphere through vaporization directly from the surface of the Earth; transpiration returns water to the atmosphere through skin and plant tissue. The rates at which evaporation and transpiration occur are highly dependent upon climatological factors such as temperature, humidity and wind.

Approximately 87 percent, or 53.8 million acre-feet, of the precipitation falling on Utah each year is removed by the natural environment through evaporation and transpiration before it reaches a stream or aquifer where it can be used. An additional 7 percent, or 4.0 million acre-feet per year, is removed by the environment through evaporation from open water bodies or transpiration from riparian and wetland vegetation after it reaches areas where it can be used. Three-fourths of this, or 3.0 million acre-feet per year, evaporates from the Great Salt Lake.

Not only do climatic conditions influence the amount of water Utah receives, but they also determine the amount of this water that is consumed. In most of the non-mountainous areas of the state, the potential for evaporation and transpiration far exceed normal precipitation. If not for Utah’s many mountains, which cool the air and capture water from passing storm systems, Utah would basically be one vast desert.

Surface Water

The portion of precipitation not initially evaporated or transpired by vegetation eventually makes its way into streams and other surface water-bodies, or percolates into the ground water. Surface water can be quantified at gaging stations on stream segments. The U.S. Geological Survey, in cooperation with other federal and state entities, monitors an extensive network of gaging stations throughout the country and takes measurements on many of Utah’s important streams and rivers. Figure 4 shows the flow for gaged streams and rivers throughout Utah based on the 1941 to 1990 period of record. The thickness of the shaded blue lines represents the average annual flow in acre-feet per year of each stream segment.

As evident in Figure 4, the Colorado River and its tributaries, the Green and San Juan rivers, are the largest rivers in Utah. The Duchesne and White rivers, tributary to the Green River, are also significant rivers in Utah. These rivers are located in some of the most sparsely populated areas of the state. The bulk of Utah’s population lives near the smaller Bear, Weber, Jordan, Provo, Sevier and Virgin river systems, which are located in the north, central, and southwestern portions of the state.

Ground Water

Detailed estimates of developed ground water supply exist for all the areas of the state with significant ground water development. Figure 5 shows the location of these areas ranked according to amount of historical withdrawal. Table 2 lists the average annual ground water withdrawals in each of the areas, based on well data available for the years of 1989 to 1998. According to these estimates, an average of 851,000 acre-feet of ground water is withdrawn annually in Utah. Most areas are pumping ground water at or below estimated annual recharge values. Thus, any excess recharge typically becomes part of a surface water system and is measured by stream gages. The Beryl-Enterprise area is one area pumping ground water in excess of natural recharge (ground water mining or overdraft). This overdraft is resulting in an average drop in water level of about 1.2 feet per year.²

It is estimated that outside of these developed ground water basins, additional water is available. However, due to remote location, depth of water table, water quality uncertainties, water rights issues, potential overdraft and other questions, it is unlikely that very much of this storage will be used.

	TABLE 3 Estimated Statewide Water Budget
	Row	Category	Water Supply (acre-feet/yr)*
	1	Total Precipitation	61,500,000
	2	Used by vegetation and natural systems†	53,789,000
	3	Basin Yield	7,711,000
	4	Interstate Compact Decreases	(535,000)
	5	Ground Water Mining Increases & Other Inflow	135,000
	6	Available Supply	7,311,000
	7	Agricultural Depletions	2,175,000
	8	M&I Depletions	443,000
	9	Great Salt Lake Evaporation	3,000,000
	10	Other Depletions‡	998,000
	11	Yield that flows out of state	695,000
	* Values based on the 1961-1990 period of record. † See evaporation and transpiration discussion on page 2-2. ‡ Wetland and riparian depletion and reservoir evaporation.

Available Water Supply

The combination of all the climatological data with the streamflow and ground water data presented to this point yields a snapshot of the water supply in Utah. This snapshot is contained in Table 3, which shows the disposition of the average annual precipitation that falls on Utah (61.5 million acre-feet). After the initial evaporation and transpiration from vegetation and natural systems (53.789 million acre-feet), approximately 13 percent (7.711 million acre-feet) makes its way into Utah’s river and aquifer systems each year. This is called the “ Basin Yield." Due to the Colorado River Compact, which decreases Utah’s entitlement to Colorado River water by 819,000 acre-feet per year, and the Bear River Compact, which increases Utah’s entitlement to Bear River water by 284,000 acre-feet per year, this amount is reduced by 535,000 acre-feet annually (row four).

Row five shows a 135,000 acre-feet per year increase to the water supply. Of this, 100,000 acre-feet is inflow from Nevada into the West Desert. The remaining 35,000 acre-feet is due to ground water mining in the Beryl-Enterprise area. Since mining ground water has the net effect of increasing the annual water supply, it is also added to the basin yield to obtain the actual water supply that is available for use in Utah. This value is shown in row six and is approximately 7.311 million acre-feet per year. Table 4 breaks down this estimate by hydrologic river basin.

	TABLE 4 Estimated Water Supply by Basin
	Basin	Water Supply (acre-feet/yr)*
	Bear River	2,106,000
	Jordan River & Utah Lake	1,278,000
	Weber River	1,046,000
	Sevier River	819,000
	Uintah	688,000
	West Colorado River	446,000
	West Desert	329,000
	Kanab Creek/Virgin River	247,000
	Cedar/Beaver	216,000
	Southeast Colorado River	136,000
	TOTAL	7,311,000
	* Values based on the 1961-1990 period of record. For developable supplies, see Table 5.

Currently, annual agricultural depletions amount to 2.175 million acre-feet (row seven of Table 3) and annual municipal and industrial (M&I) depletions amount to 433,000 acre-feet (row eight), or 30 and 6 percent of Utah’s available water supply, respectively. Great Salt Lake evaporation and other depletions combine to deplete another 3.998 million acre-feet per year (rows nine & ten), or 55 percent. This leaves about 695,000 acre-feet, less than 10 percent of the available supply, that flows out of the state.

	TABLE 5 Estimated Developable Water Supply by Basin
	Basin	Developable Supply (acre-feet/yr)*
	Upper Colorado River†	420,000
	Bear River	250,000
	Jordan River & Utah Lake	50,000
	West Desert	25,000
	Weber River	25,000
	Kanab Creek/Virgin River‡	20,000
	Sevier River	0
	Cedar/Beaver	0
	TOTAL	790,000
	* Values based on the 1961-1990 period of record. † Includes the West Colorado River, Southeast Colorado River and Uintah basins, and represents Utah's remaining Colorado River Compact depletion allocation. ‡ Does not include Sand Hollow Project, which is under construction.

In the Upper Colorado River Basin, which encompasses the Uintah, West Colorado River and Southeast Colorado River basins, the 420,000 acre-feet per year shown represents a net depletion of surface water flows in the Colorado River and its tributaries, and is Utah’s remaining Colorado River Compact allocation. This amount is what the Division of Water Resources estimates as the potential for development of the state’s remaining Colorado River allocation. In the Bear River Basin, about 75,000 acre-feet per year could be made available without building additional storage reservoirs by utilizing Willard Bay more efficiently. The remaining 175,000 acre-feet per year would require additional on or off-stream storage. In the Jordan River & Utah Lake basins, the 50,000 acre-feet per year represents mainly surface water development from existing storage in Utah Lake and a small amount of additional ground water development.

In the Kanab Creek/Virgin River Basin, the 20,000 acre-feet per year represents 16,000 acre-feet of potential ground water development and 4,000 acre-feet of surface water storage. Half of the 25,000 acre-feet shown for the West Desert area represents surface water flows that leave the northwest portion of the state into the Columbia River Basin. The other half represents potential ground water development in and around existing communities. Most of the 25,000 acre-feet per year shown for the Weber River Basin represents potential ground water development.

Although the 790,000 acre-feet of water shown is listed as developable, applications to appropriate most of these waters have already been filed with the State Engineer. The Board of Water Resources holds senior water right applications for much of the Bear River water shown, as well as a significant portion of the Upper Colorado River Basin water shown. These rights are being held in trust for the benefit of the citizens of Utah and will be used as needed projects are identified.

Figure 6 shows the variability of annual streamflow and precipitation at several locations throughout Utah. The red lines show annual precipitation in inches per year and the blue lines show annual streamflow in acre-feet per year. A composite index curve is also shown indicating the wettest and driest five year periods.

The cyclic nature of water supply conditions in Utah is evident from the figure. For example, the prominent peak in precipitation and streamflow that occurred in northern Utah during the early 1980s, and which occurred to a lesser degree in southern Utah, depicts one of the wettest periods on record. This period, which produced some of the state’s worst recorded flooding, was immediately followed by one of the driest periods on record (1987-1992). This figure also shows differences between northern and southern Utah. The variability of the water supply emphasizes the importance of water storage reservoirs to Utah. Without the benefits of storage, the effects of prolonged drought periods would be severely felt, as would the effects of flooding during wet periods. Instead, storage reservoirs allow much of the excess flows available during wet years to be captured and held in storage for possible use in subsequent dry years.

Drought and flooding, although extremes, are not abnormalities; they are part of the natural cycle. Effective water resource planning includes measures to prevent or minimize the effects of these natural events. Local entities should take advantage of normal years to plan for mitigating and responding to these eventualities.

With such growth comes an abundance of issues and challenges. How infrastructure will be planned and resources managed are important issues that will need to be effectively resolved. One certainty is that additional water will be required for municipal and industrial (M&I) purposes. This water will be made available through conservation, agricultural conversion, management strategies and water development.

Economic/ Employment Trends and Projections

Employment opportunities directly influence population growth. Utah’s population and economic growth rates are projected to continue to out-pace most of the nation through the year 2020. An increasingly diversified economy will help sustain economic growth. In 1994, the total number of people employed in Utah reached one million. Total employment is expected to double to about two million by the year 2020. Agricultural employment is the only sector expected to decrease. Metal mining and refining as well as military employment are expected to remain relatively constant. Other employment sectors will grow at varying rates. These trends apply throughout the state, with total employment for each county expected to rise.

Population Trends and Projections

Since Mormon settlers first began arriving in the Salt Lake Valley in 1847 until now, the state’s population has grown steadily. With exception of the Great Depression and the recession of the late 1980s, this growth has occurred at a rate at least 1 percent every year, with an annual average of nearly 4 percent. In 2000, Utah’s population was about 2.2 million. By 2020, the population is expected to increase to 3.2 million, and by 2050 it could more than double to about 5.0 million (see Figure 7). The 2000 Census ranks states by growth rate. The five fastest growing states in the nation are all located in the West; these are: (1) Nevada, (2) Arizona, (3) Colorado, (4) Utah and (5) Idaho. The only state bordering Utah not in the top five is Wyoming (32). Utah’s growth has historically been high due to its rapid natural increase–the result of the nation’s highest fertility rate and the nation’s third highest life expectancy.¹ In the 1990s, this rapid natural increase combined with good economic conditions to increase Utah’s growth.

Over the years, the rate of migration into and out of Utah has varied. In the mid-1980s, when California and national economies improved relative to Utah’s, there was a net out-migration and the state’s annual growth rate declined to about 0.7 percent. In the late-1980s, the state’s economy started to recover, and job growth rates in Utah exceeded those in California and the nation resulting in a net in-migration to the state.

Utah’s population is distributed as shown in Figure 8. Most of the population currently lives in the area along and around the Wasatch Front. This area, known as the Greater Wasatch Area, extends roughly 50 miles north and 70 miles south of Salt Lake City (Brigham City to Nephi) and extends approximately 30 miles west and 30 miles east ( Tooele to Park City). About 82 percent of Utah’s population is located in the Greater Wasatch Area and other urban areas of the state. This ranks Utah as the sixth most ur banized state in the nation, behind other western states such as California, Nevada and Arizona.²

Greater Wasatch Area

The majority of Utah’s future growth is projected to occur in the Greater Wasatch Area. Through extensive research and involvement of the public, the Quality Growth Efficiency Tools (QGET) Technical Committee and Envision Utah have gathered information about what residents of this area value and how they think growth should be accommodated.³ Based on this information, several issues were identified that need to be addressed in order to protect the environment and maintain economic vitality and quality of life. Improving air quality, increasing transportation options, and conserving and maintaining availability of water resources are some of the issues.

To address this and the other issues, Envision Utah developed specific quality growth strategies that seek to bring about change through means other than regulatory authority. Several of the strategies that influence water use include:⁴

• promoting walkable development (encouraging new and existing developments to include a mix of uses with a pedestrian-friendly design);
• fostering transit-oriented development (housing and commercial development that incorporates and encourages various forms of transportation);
• preserving open spaces by including open areas in new development and providing incentives to reuse currently developed land; and
• restructuring water bills to encourage water conservation.

Rural Areas

In rural areas, there are numerous communities ranging from just a few homes to populations of several thousands. Some of these communities are growing rapidly, others very slowly, and a few are declining. Some are actively trying to attract businesses that would provide jobs and help their economies. If successful, these communities could grow more rapidly than anticipated.

Many rural areas in Utah share some of the same concerns that QGET and Envision Utah have identified for the Greater Wasatch Area. These and other areas will benefit from the insights and strategies provided by this cooperative venture to ensure quality growth in Utah. In addition to this effort, the Governor’s Rural Partnership Office, in cooperation with local groups, has created a program specifically designed to assist rural communities with their unique growth related challenges. The goal of this program, entitled “ 21st Century Communities," is to provide planners and leaders in rural communities with the training, guidance and tools that will help them succeed in their planning efforts.

Water and Limitations on Growth

In most areas, water will not be a limiting factor of population growth. This does not mean that each community presently has ample water for its needs or the system capacity to deliver it. Rather, it means that in most places water could be made available if the necessary water transfers, agreements and infrastructure were in place.

More concern is being expressed about the environment than ever before and, with it, an awareness of societal effects on ecosystems. Properly balancing water management and environmental concerns will allow future M&I demands to be met without compromising the quality of life that comes with healthy ecosystems. Recreational use of lakes and streams will also increase and must be considered.

Agriculture

In recent years, the state’s economy has become more reliant upon tourism, recreation, services and technology for its economic base. However, agriculture continues to be an important part of the rural economic picture. The state has about 1.5 million irrigated acres and an additional half a million acres of dry-crop land. Most of this agricultural land is devoted to raising feed for the livestock industry, but there are a steady number of acres raising row crops and a variety of fruits and specialty items.

The trend along the Wasatch Front has been a decrease in agricultural land as the growing population has converted farms to residential and commercial areas. In rural areas, agriculture growth has slowed tremendously and is remaining fairly steady. Table 6 shows present and projected agricultural land acreage and associated water use. The Jordan River, Utah Lake and Weber River basins are all projected to experience a significant reduction in agricultural land over the next couple of decades due to urban growth.

In other basins, such as the Sevier, the Cedar/Beaver and the Kanab Creek/Virgin River, the existing water supply has nearly been fully developed and there is little water left for future agricultural development. In the Southeast Colorado River, Uintah, West Desert, and the West Colorado River basins, many localized areas have been fully developed, but there are a few areas where water could be developed and used for agricultural expansion. However, due to federal environmental regulation and economic conditions, it is unlikely that significant new agricultural land will be developed in the future.

In recent years, there has been a strong interest in preserving open spaces and other values associated with agricultural lands. This is especially true in urban areas where these desirable lands are rapidly disappearing. The state, conservation groups, agricultural interests and others have shown strong support for preserving open spaces for future generations. Through conservation easements and other means, some of these resources have been protected from development pressures. If this trend continues, more lands will be preserved.

Municipal and Industrial

	TABLE 7 Present and Projected Total M&I Water Use by Basin
	Basin	(acre-feet/yr)
		Present*	2020†	2050†
	Jordan River	332,000	449,000	650,000
	Weber River	170,000	267,000	358,000
	Utah Lake	134,000	207,000	338,000
	Bear River	50,000	71,000	103,000
	West Colorado River	51,000	55,000	62,000
	Sevier River	48,000	55,000	64,000
	Kanab Creek/Virgin River	42,000	86,000	183,000
	West Desert	24,000	35,000	53,000
	Uintah	24,000	27,000	31,000
	Cedar/Beaver	20,000	33,000	51,000
	Southeast Colorado River	9,000	10,000	12,000
	TOTAL	904,000	1,320,000	1,950,000
	* The exact year of the data shown varies from 1992 to 1998, see Division of Water Resources, Municipal and Industrial Water Supply and Uses, (Salt Lake City: Department of Natural Resources, 2000). † Projections represent future demands based on current use rates and future population projections from the Governor's Office of Planning and Budget. Actual demands will likely be less, depending on the level of conservation that can be achieved.

Estimates of present municipal and industrial water use by basin have been made and are shown in Table 7. Projections of water use in 2020 and 2050, based on present use rates and future population, are also shown. These estimates show the largest volume increases in M&I water demand will occur in the Greater Wasatch Area which includes the Jordan River Basin and portions of the Weber River, Utah Lake, West Desert and Bear River basins. The largest percentage increase in M&I water demand is expected to occur in the Kanab Creek/Virgin River Basin, where demand is expected to more than quadruple.

A study by the Division of Water Resources collected detailed M&I water use data in Utah. Table 8 contains the per capita use rates of public community and secondary water systems obtained by this study.

Water used by self-supplied industries, private domestic systems and noncommunity systems is not shown. The total per capita use rates vary substantially by basin, with a low of 272 gpcd in the Utah Lake Basin to a high of 440 gpcd in the Kanab Creek/Virgin River Basin. The statewide average is 321 gpcd. Of this amount, approximately 66 percent (or 213 gpcd) is residential use.

Figure 9 shows how Utah’s per capita water use of public supplies compares with the rest of the nation. As would be expected, due to outdoor watering needs, many western states are among the highest water users. Nevada and Utah, the two driest states, rank number one and two, respectively, in per capita water use of public supplies.

Environment

The environmental movement has had a profound influence on water resources planning, development and management. As environmental awareness increases, so will the pressure to use water to preserve and restore the environment. As the population continues to grow, and our understanding of the effects of growth on the environment increases, the public will need to be willing to make needed changes in lifestyle to accommodate growth. In general, the environmental movement will assist water managers in their efforts to promote water conservation, utilize efficient water management technologies and improve water quality.

Recreation

Today, recreation is an important component of water use and development projects. Some of the most popular recreation activities in Utah are associated with waterways. These activities include boating, rafting, kayaking, swimming and stream fishing.

The Green and Colorado rivers in Utah are internationally recognized recreation and scenic treasures. Tourists travel thousands of miles to these rivers to float white water stretches, fish blue-ribbon trout streams, or participate in other recreational opportunities. Flaming Gorge and Lake Powell National Recreation areas also generate millions of visitor days from in- and out-of-state visitors. The state also has parks and recreational facilities on many reservoirs including Deer Creek, East Canyon, Echo, Jordanelle, Pineview, Quail Creek, Rockport, Willard Bay and others.

In recent years, Utah Lake and the Great Salt Lake, as well as the Jordan and Bear rivers, have all benefitted from water quality management efforts that make them more appealing to the public for recreational purposes. The Jordan River has benefitted from a coordinated state, federal and local effort to establish a parkway that will ultimately traverse the entire length of the river. A few problems that are foreseen affecting recreation are:

• A growing population will increase the use of existing recreational facilities.
• Less than adequate boat ramps and parks.
• An effective decrease of reservoir surface areas as the reservoirs’ operating conditions approach their intended use patterns.
• Increasing financial strain on managing entities.

Due to past water management and development activities, Utah’s cities, towns and industries generally enjoy an adequate supply of water. In the future, however, the demands for water imposed by a growing population will exceed presently developed supplies available for municipal and industrial (M&I) purposes. Implementing effective water conservation is a critical component in satisfying Utah’s future water needs. The focus of this chapter is water conservation in the M&I sector. Water conservation as it relates to agriculture is discussed in Chapter 5.

• delay expensive capital investments to upgrade or expand existing water facilities;
• reduce sewage flows, delaying the need for more wastewater treatment facilities;
• conserve energy as less water needs to be treated, pumped and distributed to the consumer;
• lessen the leaching of chemicals and sediments into streams and aquifers because of improved urban irrigation efficiencies; and
• reduce stream diversions, enhancing water quality, environmental and recreational functions.

Utah’s Water Conservation Goal

The goal of the state is to conserve water wherever possible. Because most new water demands will be the result of an increasing population, the state has developed a specific goal to conserve water use directly linked to population growth. This goal is to reduce per capita water demand from public community systems by 12.5 percent by 2020 and a total of 25 percent before the year 2050. This is equivalent to a total decrease in demand of about 400,000 acre-feet per year by the year 2050.

Figure 10 illustrates the important role that 25 percent conservation can play in reducing M&I water demands throughout Utah by the year 2050. For example, without water conservation, it is estimated that the Jordan River Basin would experience an increase above current demand of about 320,000 acre-feet per year by 2050. With conservation, this increase is cut nearly in half. The figure also shows that most basins still have a fairly large gap, representing additional needed water supply, even after conservation. Although it may be possible to achieve more than 25 percent conservation, it is likely that most of these additional needs will be met by a combination of agricultural water conversions, improved management of existing supply and water development.

Water Conservation Plans

In 1998 and 1999, the Utah Legislature passed and revised the Water Conservation Plan Act. This act requires conservancy districts and water retailers with more than 500 connections to prepare a water conservation plan and submit it to the Division of Water Resources. This requirement covers systems that service about 93 percent of Utah’s population. As of June 2001, 99 out of 150 water retailers and conservancy districts who were supposed to submit plans have done so. These plans are to be updated and resubmitted every five years. State water funding boards have further stipulated that a plan must be in place prior to any funds being awarded. The legislation also directs the Board of Water Resources to study ways to implement the plans, develop recommendations on implementation, and report to the Legislature.¹

This legislation has given water conservation increased emphasis to many water providers as well as significant media coverage throughout the state, and has created a foundation upon which the state can build a successful water conservation framework. This framework took initial shape in the recommendations that the Board of Water Resources made to the Legislature in November 1999. Some of these recommendations are summarized below:²

• Educate the public on the importance of using Utah’s water resources more efficiently. This includes providing adult education opportunities to teach homeowners and landscape contractors how to design and care for water-efficient landscapes and disseminating information through the media on weather factors affecting lawn and garden water use.
• Provide programs for training and licensing landscape and irrigation contractors and managers to assure that large urban irrigation systems are properly installed and operated.
• Provide incentives for more efficient water use by using a volume rate structure with discounts for efficient use as well as penalty charges for water wasted. Such a rate structure should be supported by trained staff and appropriate tools to assist water wasters in reducing use.
• Encourage monthly meter reading and billing by all water retail providers. Water bills should have an education component that assists consumers in reducing their use.
• Support existing water audit programs and encourage more active participation in such programs. This involves providing state support to train and test irrigation water auditors and collecting data to track the effectiveness of such programs.
• Encourage water conservancy districts and water retailers to fund rebates to encourage replacement of old, high-flow toilets and other high water use appliances in the home.
• Study the feasibility of tax incentives for water intensive industries and businesses as well as homeowners, for finding ways to improve water use efficiency.

Funding for research and implementation of local water conservation programs and measures is needed to complement the requirements of the water conservation plans. Accurate and reliable results of water conservation measures in Utah need to be collected in order to determine those measures that will most likely produce positive results. This will encourage a broader acceptance of water conservation by local decision-makers and allow for a better allocation of resources to achieve water conservation goals.

Baseline Water Use Rates

One data need that is critical for a water provider to monitor the success of water conservation measures is the determination of an accurate baseline water use. This typically includes all M&I uses except for self-supplied industries, private domestic, and other non-community systems. This baseline is usually expressed as gallons per capita per day (gpcd).

The Division of Water Resources has determined the total per capita water use of all public water supplies, including secondary water, to be approximately 321 gpcd. Only Nevada (the driest state in the U.S.) uses more water per capita. While Utah’s relatively high per capita water use is often compared to the national average of approximately 179 gpcd, a more appropriate comparison would be against other Rocky Mountain states. This average is approximately 245 gpcd.³

Figure 11 breaks down Utah’s total per capita use of public supplied water into residential, commercial, institutional and industrial components. Residential use is by far the largest component at about 66 percent or 213 gpcd. As shown on the right, an estimated 143 gpcd, or 67 percent of this amount, is used outdoors and 70 gpcd (33 percent) is used indoors. Institutional uses, which include schools, churches, parks, cemeteries and city-owned properties, are about 55 gpcd. Commercial uses are approximately 39 gpcd and industrial uses (public supplied only) are approximately 14 gpcd.

Although these statewide values provide useful information for comparison purposes, individual communities should establish their own baseline use rates. This will assist these communities in setting appropriate goals and monitoring the progress toward reaching those goals through the various conservation measures and programs they decide to implement.

Incentive Pricing

Much research and experimentation have been done in the area of water pricing as an incentive to reduce water use. Nearly all the literature agrees that a properly designed water rate structure is an essential element of an effective water conservation program. If water prices are too low, then the signal sent to the consumer is that the resource is abundant and they need not conserve.⁴

In an era where developable water supplies are reaching their limits and economic and environmental concerns make further development less desirable, it makes sense to reflect these conditions in water rate structures. Yet, many water providers continue to use structures that do little to promote efficiency.

TABLE 9 Water Prices of Various Western Cities
City	Estimated Cost per 1,000 gallons
Reno	$3.39
Seattle	$2.30
Los Angeles	$2.22
Park City, UT	$2.20
Tucson	$1.81
Boise	$1.68
Las Vegas	$1.65
Phoenix	$1.61
Albuquerque	$1.41
Denver	$1.14
Sandy, UT	$0.99
Salt Lake City	$0.87
Provo, UT	$0.75
Sacramento	$0.75
AVERAGE	$1.63
Utah Average	$1.15
National Average	$1.96
(Out-of-state values adapted from, "Western States Water Newsletter," dated, December 31, 1998. In-state values taken from Utah Division of Drinking Water, 1999 Survey of Community Drinking Water Systems, 2000, Appendix 7, 1-6.)

Table 9 lists average water prices of several cities in Utah and the western United States. As shown, Utah’s rates are among the lowest in the West and are well below the national average. Some reasons that may help explain why Utah’s rates are lower include the following: much of Utah’s population is located near mountain watersheds which have been easily harnessed to gravity feed a significant portion of the state’s water needs; ground water use has been managed well with typical pump-lifts that are reasonable and have remained fairly steady; and, property taxes are used to pay a portion of the water costs.

Whatever the reasons for Utah’s lower rates, simply raising water prices is not the solution. Instead, water pricing strategies that “reward" high water use with lower or static rates, should be replaced with pricing structures that discourage waste and reward efficiency. Rate structures must also be designed to avoid capital shortfalls as customers succeed in conserving water. Some of these effective rate structures, including increasing block, seasonal and ascending block rates, are discussed briefly below.

Increasing Block Rates

The increasing block rate is currently used by many water systems in Utah. It typically has a base charge of $5 to $20 which must be paid whether or not any water is used. A fixed amount of water is usually made available as part of this base charge. The price of subsequent increments of water supplied then increases in a step-wise fashion. This rate structure encourages efficiency only if the steps in the incremental price are sufficient to discourage excessive use.⁵ Separating the base charge from any water actually delivered allows the water supplier to bett