The Missouri River Basin: A new comprehensive plan is needed for the Misouri River Reservoir System
At the Feb. 25, 2008, meeting of the Missouri River Association of States and Tribes (MoRAST), the board took action to request that the U.S. Army Corps of Engineers initiate a study to determine whether changes are needed to the congressionally authorized purposes for the Missouri River Mainstem Reservoir System in order to best meet the contemporary needs of the people of the Missouri River Basin. Since that time, it has been working with Congress to secure funding and authorization for the study, as needed.
MoRAST is an organization of the States of Wyoming, Montana, North Dakota, South Dakota, Nebraska, Iowa and Kansas and the American Indian Tribes in the Missouri River Basin. It serves as a forum for the identification, discussion and resolution of issues of common concern to the basin states and tribes involving the management of natural resources of the Missouri River Basin, including water resources and fish and wildlife, as well as the consideration of the impacts to the economic, historical, cultural and social resources among the basin states, tribes and the federal government.
The Missouri River Mainstem Reservoir System is operated by the U.S. Army Corps of Engineers in accordance with the 1944 Flood Control Act (FCA) for various authorized purposes including flood control, water supply, irrigation, hydropower, navigation, recreation, and fish and wildlife. The reservoir system is a part of what has been historically referred to as the Pick-Sloan Plan, named after key officials from the Corps of Engineers and U.S. Bureau of Reclamation who were instrumental in the development of plans prepared by their agencies related to water development in the basin in the 1940s. However, after over 60 years of operations, extended drought and many other changes in how water is used, there is now a question as to whether the current operations are best meeting the contemporary needs of the basin. Section 216 of the 1970 Flood Control Act provides authority for the Corps of Engineers to reevaluate existing projects if the physical, economic or environmental conditions have changed since the project’s completion.
Some of the originally authorized purposes, such as flood control, water supply and hydropower, have provided substantial benefits as expected, while other purposes, such as irrigation and navigation have not come anywhere close to the expectations that existed when the project was authorized in 1944. Much of the irrigation planned in the upper Missouri River Basin was not developed. The amount of commercial goods shipped on the Missouri River is far less than anticipated and has significantly declined since the peak tonnage reached in 1977. As multiyear droughts have occurred, the reservoir system is hard pressed to deliver project benefits for municipal and industrial water supply, recreation use and other purposes. As a result, several water-supply emergencies occurred on Tribal Reservations and in other communities in the Upper Missouri River Basin. As water levels dropped in the Missouri River reservoirs, some water intakes had to be lowered at significant expense. Others may need more work in the future. Likewise, water suppliers and power entities that divert from the lower river, such as in the Kansas City area, were either short of water or also had to install emergency pumps and spend large amounts of money to meet their needs due to low water levels and bed degradation. In addition, extended drought and low reservoir water levels caused by current system operations has caused serious impacts to hydropower production. The Western Area Power Administration (WAPA), which markets power to wholesale customers in the basin, has had its ability to meet firm power demands severely impacted due to loss of generating efficiency from continuing low water levels. This has resulted in a 37.3 percent increase in rates to wholesale customers since January 2004 to cover the cost of purchasing power from the open market. Cooling water for power plants is also a critical need.
While the construction of the reservoir system and other works have resulted in tremendous project benefits for many authorized purposes, it has also created substantial environmental impacts, such as a large loss of wetlands and habitat for a number of native species. As a result, two birds and one fish are now listed as threatened or endangered pursuant to the Endangered Species Act, and many other species have suffered major declines and are at risk for future listings. A large and expensive effort is underway to recover these species and attempt to restore the ecosystem. In addition, the need for protection of historical and cultural resources is now well documented. In short, major changes have occurred in the physical, economic and environmental conditions since the project was authorized over 60 years ago by the 1944 FCA.
While Section 216 provides one approach to study the system operations, the Corps of Engineers has also noted that due to the scope and breadth of this matter, a new authorization for a comprehensive analysis from Congress may be necessary. Currently, the Corps has indicated that no funds have been provided for a Section 216 study and it has no plans to initiate such a study without direction from Congress.
As a result, action will be needed by Congress if either a Section 216 study or a comprehensive analysis is to be conducted to determine whether changes are needed to the authorized purposes in the 1944 FCA for the operation of Missouri River Reservoir System in order to best meet the contemporary needs of the Missouri River Basin. An objective analysis could lead to the development of a new comprehensive plan to best meet the contemporary needs of the basin. There may well be an opportunity to improve the operations of the system for the benefit of both upstream and downstream interests for the various purposes that continue to be important to the Missouri River Basin and the nation. At this time, MoRAST has not requested any change to the 1944 FCA, but it does believe it is time to conduct an objective study of the Missouri River Reservoir System.
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