October 22, 2014
California Drought: Water Supply and Conveyance Issues
Overview
refuges. The State Water Project (SWP) announced
cutbacks to 2014 water deliveries—no new water was
Nearly 60% of the state of California is experiencing
delivered to most contractors except in cases of public
“exceptional drought”—the most severe drought
health and safety. The SWP primarily provides water to
classification (see Figure 1, below). The 2014 water year
M&I users and some agricultural users. Major CVP and
ended September 30 as the third-driest year on record in
SWP pumps that supply water for central and southern
terms of precipitation. Additionally, precipitation during the
California are located at the southern portion of the
winter and spring months in 2013 was the lowest on record,
Sacramento and San Joaquin Rivers Delta confluence with
leaving water storage reservoirs unusually low going into
San Francisco Bay (Bay-Delta). Approximately 22 million
2014. Water deliveries to water districts receiving water
people receive water from the Bay-Delta annually.
from federal and state facilities throughout the state were
cut due to hydrological and regulatory factors. Some areas
What’s at Stake?
relying on groundwater saw wells go dry. The National
Oceanic and Atmospheric Administration predicts below-
The widespread nature of drought conditions, coupled with
normal precipitation again for this winter.
low water supplies in the state’s major reservoirs and
regulatory restrictions on CVP and SWP operations to
A drought declaration made by California Governor Jerry
protect water quality, fish, and wildlife, mean that many
Brown on January 17, 2014, remains in effect (see
sectors and areas have been affected. Many cities and
http://gov.ca.gov/news.php?id=18368).
counties have instituted water rationing, and the governor
called for consumers to cut water use by 20%.
Figure 1. California Drought Conditions (Oct. 14, 2014)
Congress funds and oversees the Central Val ey
Project, which in a normal water year delivers, on
average, approximately 7 mil ion acre-feet of water
annual y. CVP 2014 water deliveries have been
severely curtailed due to drought and other factors.
California is the country’s largest agricultural producer in
terms of cash farm receipts—accounting for 11% (nearly
$45 billion) of the U.S. total in 2012, the last year for which
data are available (see http://www.cdfa.ca.gov/statistics/).
The drought has affected crop and rangeland conditions on
non-irrigated land and required livestock producers to use
supplemental hay and grain. Hundreds of thousands of
acres have gone fallow because sufficient water was not
available. However, fruit and nut orchards continue to need
irrigation during drought. The effects of drought on
Source: http://droughtmonitor.unl.edu/Home/StateDroughtMonitor.aspx?CA.
California agriculture could have ramifications beyond the
state, with reduced supplies and higher product prices for
The U.S. Department of Agriculture announced disaster
some commodities—particularly those for which California
declarations for most California counties (see Figure 1) and
is the primary producer (e.g., almonds). For example,
other areas in the Southwest. Such declarations trigger the
California produces 65% of the nation’s non-citrus fruit and
availability of emergency loans designed to partially
nuts. On the other hand, where substitutions exist for some
compensate for losses for producers who cannot obtain
crops and are readily available, prices may not be
commercial credit.
immediately affected.
Meanwhile, the Bureau of Reclamation (Department of the
Availability of groundwater or purchase of water from
Interior) announced cutbacks to Central Valley Project
others may help some weather the dry conditions; however,
(CVP) water users—including unprecedented cutbacks to
with every corner of the state categorized as a primary
senior water rights contractors and zero deliveries to many
drought disaster area, it is not clear how much water will be
other contractors. The CVP supplies water to hundreds of
available. Some areas are already experiencing low
thousands of acres throughout the state, as well as to some
groundwater levels and subsidence due to increased
municipal and industrial (M&I) water users and wildlife
groundwater pumping in 2014 and preceding dry years.
Further, this could be the beginning of a longer-term
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California Drought: Water Supply and Conveyance Issues
drought, in which case relying on diminishing groundwater
Figure 3. Snow Water Content, Percent of April 1
supplies may not be an option. A statewide groundwater
Average Throughout Year (June 9, 2014)
management law was enacted in September 2014.
Northern Section
In-state power production, recreation, air quality, and fish
and wildlife also are likely to be affected. California hosts
many recreational reservoirs, river rafting opportunities,
and recreational and commercial fisheries that could be at
risk. The state contains many threatened and endangered
species and provides significant waterfowl habitat along the
Pacific Flyway—critical to migrating birds. Certain water
levels (and temperatures) are needed in waterways and
Central Section
lakes to maintain aquatic ecosystems and species viability.
Current Hydrologic Status
Water levels at California’s largest reservoirs are well
below their historic averages for fall. The largest reservoir,
Lake Shasta, is at 41% of average for this time of year.
Figure 2. Five Largest Reservoirs (Oct. 16, 2014)
% Historical Average (for rate)
Southern Section
% Total Capacity
42%
San Luis Reservoir
21%
39%
New Melones
22%
35%
Trinity Lake
24%
48%
Lake Orovil e
29%
41%
Shasta Reservoir
25%
Source: California Data Exchange Center
(http://cdec.water.ca.gov/cgi-progs/snow/PLOT_SWC).
0%
50%
100%
Source: http://cdec.water.ca.gov/cgi-progs/products/rescond.pdf.
Federal Response
While much of drought planning and response happens
Water content in snow in the Sierra-Nevada Mountains was
locally, the federal government has historically helped
well below normal (see Figure 3) through June 2014. Such
farmers in times of drought. (See CRS Report RS21212.)
levels are important because snowpack constitutes a major
Additionally, the Administration in November 2013
part of water storage for the state. Runoff from snowpack
announced a National Drought Resilience Partnership to
supplies major reservoirs; however, if there is no snowpack
help prepare for and reduce drought impacts. However,
or low water content, reservoirs that are already low from
there is no overarching federal drought policy or program.
last year’s low water supply will not refill.
Regulatory Factors
Because of the CVP’s importance to water users and
resources throughout the state, Congress also plays a role in
Complicating the hydrologic situation is a complex web of
CVP water management. Congress addressed the situation
regulatory requirements on CVP and SWP operations.
in part by including provisions to facilitate water banking,
These requirements affect how much water is delivered
water transfers, and new storage projects in the 2014
from the projects. Regulatory requirements include certain
Consolidated Appropriations Act (P.L. 113-76). The act
releases of water from reservoirs and limits on pumping
also extended through 2017 authorization for the
from the Bay-Delta to protect threatened and endangered
Emergency Reclamation States Drought Relief Act, which
species, as well as for state water quality regulations. The
provides for assistance to 17 western states and Hawaii.
state system of water rights priorities and Reclamation
Other legislation under consideration (e.g., H.R. 1927, H.R.
contracts also play a role in water allocation during drought.
3964, and S. 2198) could have significant effects on federal
While some are calling for modification of some
agency responses, including actions related to public safety,
regulations, others fear changes may risk irreversible harm
human health, economic productivity, and the viability of
to fish species. Furthermore, it is unclear how much water
threatened and endangered species in California.
would be available if these restrictions are lifted and
whether the amount would have a significant effect on
Betsy A. Cody, bcody@crs.loc.gov, 7-7229.
alleviating the impacts of drought.
IF00008
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Document Outline