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Drought Management
and Its Impact on
Public Water Systems
Report on a Colloquium Sponsored
by the Water Science and Technology Board
September 5, ~ 985
Colloquium ~ of a Series
Water Science and Technology Board
Commission on Engineering and Technical Systems
Commission on Physical Sciences, Mathematics, and Resources
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C. 1986
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NOTICE: The project that is the subject of this report
was approved by the Governing Board of the National
Research Council, whose members are drawn from the
councils of the National Academy of Sciences, the
National Academy of Engineering, and the Institute of
Medicine.
This report has been reviewed by a group other than
the a''-hr~'c! =^r~n'Ain~ ~^ mr^~17~^C approved by a
Report Review Committee consis;t~ng of members of the
National Academy of Sciences, the National Academy of
Engineering, and the Institute of Medicine.
3 ~~— ~ I'm, —~ ~—~ ~ ~ ~ ~ ~ ~ ~
. .
The National Research Council was established by the
National Academy of Sciences in 1916 to associate the
broad community of science and technology with the
Academy's purposes of furthering knowledge and of
advising the federal government. The Council operates
in accordance with general policies determined by the
Academy under the authority of this congressional
charter of 1863, which establishes the Academy as a
private, non profit, self-governing membership
corporation. The Council has become the principal
operating agency of both the National Academy of
Sciences and the National Academy of Engineering in the
conduct of their services to the government, the public,
and the scientific and engineering communities. It is
administered jointly by both Academies and the Institute
of Medicine. The National Academy of Engineering and
the Institute of Medicine were established in 1964 and
1970, respectively, under the charter of the National
Academy of Sciences.
, ~ l:
Cogency i 1 has become the nrinc inn 1
This report represents work supported by agencies
providing general support for activities of the Water
Science and Technology Board, including the Bureau of
Reclamation, U.S. Environmental Protection Agency,
Federal Emergency Management Agency, National Science
Foundation, U.S. Department of Energy, and U.S.
Geological Survey.
Available from
-
Water Science and Technology Board
National Research Council
2101 Constitution Avenue, NW
Washington, DC 20418
Printed in the United States of America
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PRINCIPAL CONTRIBUTORS
ROBERT L. SMITH, University of Kansas, Chairman
EDWARD W. CLYDE, Clyde and Pratt, Salt Lake City, Utah
JOHN A. DRACUP, University of California, Los Angeles
BENEDYKT DZIECIELEWSKI, Southern Illinois University,
Carbondale
DUANE L. GEORGESON, Los Angeles Department of Water and
Power
GILBERT F. WHITE, University of Colorado, Boulder
. . ,
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WATER SCIENCE AND TECHNOLOGY BOARD
JOHN J. ROLAND, The Johns Hopkins University, Chairman
MARY P. ANDERSON, University of Wisconsin-Madison
STEPHEN BURGES, University of Washington
PAUL BUSCH, Malcolm Pirnie Engineers, White Plains, New
York
JOHN CAIRNS, Virginia Polytechnic Institute and State
University (through 10/85)
JAMES M. DAVIDSON, University of Florida -
PETER S. EAGLESON, Massachusetts Ins titute of Technology
(through 10/85)
LEO CHISEL, Wright Water Engineers, Denver, Colorado
RICHARD S. ENGELBRECHT, university of Illinois
JEROME B. GILBERT, East Bay Municipal Utility District,
Oakland, California
HARRY L. HAMILTON, JR., State University of New York at
Albany
HELEN INGRAM, University of Arizona (through 10/85)
MICHAEL KAVANAUGH, James M . Montgomery Consul t ing
Engineers, Oakland, California
LESTER B. LAVE, Carnegie-Mellon University
ORIE LOUCKS, Holcomb Research Institute, Indianapolis,
Indiana (through 10/85)
WALTER R. LYNN, Cornell University
GEORGE R. MARZOLF, Kansas State University
DAVID W. MILLER, Geraghty & Miller, Inc., Syosset, New
York
JEROME W. MILLIMAN, University of Florida (through 10/85)
ROBERT L. SMITH, University of Kansas
GARY WEATHERFORD, Watershed West, Berkeley, California
EDITH BROWN WEISS, Georgetown University Law Center
Staf f
STEPHEN D . PARKER, Director
SHE: ILA D. DAVID, Staff Officer
PATRICK W. HOLDEN, Staf f Of ficer
CAROLE B. CARSTATER, Staff Assistant
JEANNE AQUILINO, Administrative Secretary
RENEE A. HAWKINS, Senior Secretary
LIZETTE A. MCCREARY, Secretary
1V
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PREFACE
The Water Science and Technology Board Colloquia focus
attention and debate on emerging Is sues in water
science, technology, and policy. These colloquia
provide forums to encourage discussion and debate of
certain issues which the board believes should be
addressed by the scientific and engineering
communities. Clearly, by initiating this discussion,
the board seeks to provoke individuals to consider such
issues and to stimulate research on these topics.
The first colloquium addressed drought management and
its impact on public water systems. The inquiry began
with attempts to define drought, and ranged from the
need to know more of cause and effect and improved
forecasting, to the legal procedures required to
implement various management alternatives. Individuals
noted for their expertise in areas of drought management
were invited by the board to present their views and
insights on this subject at a meeting of 50 participants
in Boulder, Colorado, on September 5, 1985.
It is apparent that drought preparedness has suffered
from neglect. Historically, research efforts have
focused on problems associated with water excess rather
than water deficiency. Droughts may be infrequent, or
of short duration, but they can have serious and
long-lasting effects on a community. In the absence of
adequate preparation, a drought may cause serious
disruption for water users. Analyses of records of
previous droughts implies that this information is not
effectively communicated or understood by successive
generations of water professionals or the public. The
recent drought conditions in the northeastern United
v
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States have focused attention on the need for water
conservation and planning for future water needs. There
also is a great need to educate the public about the
advantages and disadvantages of proposed alternative
courses of action.
The colloquium keynote address delivered by Gilbert
White, and presentations made by Edward Clyde, attorney;
John Dracup, University of California, Los Angeles; Ben
Dziegielewski, Southern Illinois University at
Carbondale; and Duane Georgeson, Los Angeles Department
of Water and Power provide much of the substance of this
report.
It was a pleasure to have had the opportunity to chair
this colloquium and to synthesize the discussion
contained in the report. The Water Science and
Technology Board acknowledges the contributions of the
participants in the colloquium and is especially
grateful to those who made formal presentations.
Finally, special recognition is due to Walter R. Lynn,
the board's first chairman, whose idea it was to
initiate this series of colloquia in the interest of
water science,
technology, and policy.
Robert L. Smith, Chairman
Colloquium on Drought Management
and its Impact on Public Water
Systems
April 1986
V1
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CONTE~rS
OVERVIEW AND CONCLUSIONS
BACKGROUND PAPERS
1 Dimensions of Drought Management for Public
Water Supplies, colloquium keynote address
by Gilbert F. White
2 Causes and Occurrence of Drought, by
John A. Dracup
3 What are Acceptable Risks for Public Systems?,
by Duane L. Georgeson
4 Drought Management Options, by Benedykt
Dziegielewski
5 Legal and Institutional Aspects of Drought
Management, by Edward W. Clyde
APPENDIXES
A The Emergency Water Conservation Plan of the
City of Los Angeles and the Summary of the
Los Angeles Emergency Water Conservation
Ordinance
B Salt Lake County Water Conservancy Distric
Rationing Plan
1
11
24
49
65
78
101
114
C Biographical Sketches of Principal Contributors 122
D Attendees at Boulder Colloquium
e -
V11
125
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