Montana State Water Plan - Index — Montana DNRC

WATER USE IN MONTANADuring the 18-month long planningANNUAL ACRE FEETprocess, DNRC worked with the BACson developing basin specificresponses to each of the subject1,002,000 (1.2%)areas listed above. Results of thisReservoir Evaporationeffort in each planning basin,along with supporting data, arecontained in four individual basinplanning reports. Each of the fourbasin plans serves as a standalone 72,000,000 (86%)Hydropowerdocument for guiding the development and management of thebasin’s water resources. Thesebasin plans will continue to evolveto meet the planning needs oftheir respective basins.In contrast to the detail richbasin plans, the State Water Planprovides a high-level overview of the state’s waterresources and lays out a path for managing thoseresources over the next twenty years. Althoughthe State Water Plan represents the outgrowthof these regional plans, only the State WaterPlan has been formally adopted by DNRC. In theevent that guidance in one of the basin plans isat odds with the State Water Plan, the directionoffered in the State Water Plan takes precedence.Similarly, the policy recommendations offeredin the basin plans represent the collective workof the individual BACs and should not be interpreted as carrying the authority of official statepolicy. The basin plans are all available for reviewat www.dnrc.mt.gov/mwsi.Water use in Montana totals approximately 84million acre-feet annually. Hydroelectric powergeneration accounts for 72 million acre-feet or86% of the water used on a state-wide basis.Approximately 3.6 million acre-feet are consumedstate-wide. Agriculture diverts approximately10 .4 million acre feet and consumes approximately 2.4 million acre-feet, reservoir evaporationconsumes 1 million acre-feet, and municipal,industrial, domestic, and livestock wateringconsume approximately 200,000 acre-feetcombined.3384,000 (0.5%)Municipal, Industrial, Stock,& Domestic Consumption10,395,000 (12.4%)Irrigation DiversionNON-CONSUMPTIVEWATER USEWater use that isrecovered eventuallythrough surface andgroundwater return flows.CONSUMPTIVEWATER USEWater use that isirrecoverable and lostthrough non-recoverablewithdrawals, crop consumption,and evaporation.Demand for water is a function of many factorsthat are inherently uncertain. Population maygrow or decline and agriculture and industry maydemand more water or make do with less throughgreater efficiency. Changing and variable climaticconditions compound this uncertainty.To forecast the potential effects of climate trendson future water supplies in Montana, DNRCmodeled a range of climate scenarios followinggeneral procedures similar to those describedin the U.S. Bureau of Reclamation (2011) WestWide Climate Risk Assessments. Virtually allmodel simulations project warmer temperaturesand most project modest precipitation increases.Although annual stream flow volumes areexpected to stay the same or increase, Montanans are likely to see a shift in the timing of runoffdue to earlier snowmelt and an increase in rain asa percentage of precipitation during late winterand early spring.The availability of water for new appropriationsvaries across the state and is subject to bothphysical water availability and existing legaldemands. Many of the basins located in thewestern third of the state are generally closedto new surface water appropriations. Opportunities for new appropriations for surface water orMONTANA DEPARTMENT OF NATURAL RESOURCES AND CONSERVATION

hydraulically connected groundwater also maybe limited outside of closed basins because ofexisting legal demands including irrigation claims,hydroelectric rights, or instream water rights forfisheries, wildlife, and recreational use.to mitigate environmental impacts, and limitedlegal and physical availability of water to store.The development of new storage projects islimited to basins where the volume of annualrunoff exceeds downstream legal demands.Given the scarcity of legally available surfacewater, the reallocation of existing water rights tonew uses will play a key role in meeting futuredemands. As part of that reallocation, water usersmust receive an authorization from DNRC beforethey change or lease their water right in order toensure that they will not adversely affect otherwater rights.There are also opportunities to retain high springflows through the use of natural systems such asriparian areas, floodplains and wetlands whichact to slow runoff and promote groundwaterrecharge effectively storing water and releasingit slowly back to the surface water system. In thisway, these natural systems fill a role similar totraditional reservoirs. Artificial recharge of alluvialaquifers may also provide additional opportunities to store water when the physical supplyexceeds downstream legal demands.In areas of Montana, the ability to put water to abeneficial use is limited as much by water qualityas physical availability. Water quantity and waterquality are closely intertwined and the MontanaThe major findings and recommendations ofWater Use Act recognizes this relationship (§85-2- the State Water Plan are found in the pages311 MCA). However, this document offers limitedthat follow. All recommendations contained inguidance regarding water quality issues becausethe State Water Plan are subject to the existingDNRC has no authority to regulate water qualityinstitutional and legal framework for water use inand the state water planning statute does notMontana as provided by the Montana Constituexplicitly address water quality. The Departmenttion, prior appropriation doctrine, and Montanaof Environmental Quality has primary authorityWater Use Act. Full implementation of someover the regulation of water quality in Montana.recommendations may require the Legislature toFor more information on water quality regulationamend the Water Use Act.in Montana, please reference DEQ’s MontanaNonpoint Source Management Plan athttp://deq.mt.gov/wqinfo/nonpoint/WATER CONSUMED IN MONTANANonpointSourceProgram.mcpx). Another ANNUAL ACRE FEET10,400 (.03%)good source of information is the CleanIndustrialWater Act Information Center http://deq.13,900 400 (.08%)ThermoelectricThese sites provide information, strategies and goals and reports that addresswater quality issues generally as well as42,500 (1.2%)Stock Waterwater quality as it is affected by water72,000 (2%)quantity.MunicipalWater storage is an important tool formeeting future demands and respondingto a changing climate. The prospect ofconstructing storage projects in Montanais limited by the availability of suitablelocations, cost, public support, the need1,002,000 (28%)ReservoirEvaporation2,414,000 (67.3%)Agricultural IrrigationTHE MONTANA STATE WATER PLAN 2015 EXECUTIVE SUMMARY4

MAJOR FINDINGS AND KEYRECOMMENDATIONSThe complete recommendations for the Montana State Water Plan are set forth below. Theserecommendations were developed from input provided by four regional watershed basin councils,private individuals, and local, state, tribal, and federal resource managers. These recommendations are intended to guide Montana water policy and management over the near, intermediate,and long term bases. Where appropriate, DNRC has identified the agencies with primary responsibility for plan implementation. If unidentified, the recommendation is intended to offer guidanceto the many private, local, state, federal, and tribal entities involved in water management inMontana.All recommendations contained in the State Water Plan are subject to the existing institutionaland legal framework for water use in Montana as provided for by the Montana Constitution, priorappropriation doctrine, and Montana Water Use Act. Full implementation of some recommendations may require the Legislature to amend the Montana Water Use Act.5MONTANA DEPARTMENT OF NATURAL RESOURCES AND CONSERVATION

WATER SUPPLY AND DEMANDWater supply across Montana is controlled by the variability inseasonal temperature and precipitation. While the demand for watercontinues to grow, water availability varies from year to year andoften changes dramatically within a given year. As a result, copingwith supply and demand imbalances is a constant feature of watermanagement in Montana. Ensuring an adequate supply of water tomeet current beneficial uses and future demands is a theme echoedby the four Basin Advisory Councils throughout the planning process.Steps to address these issues include:Support Water Use Efficiency and Water ConservationAs the demand for water increases, water conservation and water useefficiency to reduce the consumption of water will play a larger rolein meeting the state’s future needs. Looking ahead, we must focus oninnovative strategies to stretch supplies and promote water conservation while protecting against adverse effects to existing water users.There is a general misunderstanding that when irrigators, municipalities, or other water users improve the efficiency of their watersystems so that they divert or discharge less water that they areactually “saving” or reducing water consumption. In reality, irrigationupgrades, for example, may actually increase water consumptionthrough higher crop yields and reduced return flows relied on byother water users. Additional adverse effects may include decreasedrecharge of shallow groundwater. The Montana Water Use Act prohibits changes in water use that result in adverse effects to other waterusers on the source. Site-specific investigations, long-term monitoringand development of tools and strategies for mitigating the adverseeffects from increasing efficiencies are needed to facilitate informeddecisions on new permitting and water right change authorizations.Free flowing wells are found throughout Montana and are a valuableasset, especially for stock water in remote areas, but left uncontrolledthey can waste water and contribute to the decline of groundwaterlevels. Records from the Montana Groundwater Information Center(GWIC) indicate that there are more than 4,400 wells reported as“flowing” at the time of construction. With an average flow rate (ofmeasured stock wells) of 20 gallons per minute, equipping a singlewell with a flow control valve can save approximately 32 acre feet peryear. Monitoring by Montana Bureau of Mines and Geology indicatethat water levels in the Lower Hell Creek – Fox Hills aquifer alongthe Yellowstone River corridor from Miles City to North Dakota havedeclined as much as 100 feet over the past 30 to 40 years partly dueto uncontrolled flowing wells.THE MONTANA STATE WATER PLAN 2015 EXECUTIVE SUMMARY6

SHORT TERM RECOMMENDATIONS (0–2 YEARS) Support both site-specific investigations andlong-term monitoring studies to quantify theeffects associated with changes in irrigationmethodologies and improvements to waterdistribution systems. These investigationswill help to inform the development of waterefficiency and conservation strategies that usewater more effectively. Support state and federal programs that assistlandowners with controlling discharge fromuncontrolled flowing wells. DNRC will analyze the water right implicationsand lessons learned from the land applicationof treated municipal wastewater.SHORT TERM RECOMMENDATION (0–2 YEARS) DNRC will work with local water users and othergovernment agencies to conduct a basin-widephysical water availability and water management assessment in the Upper Missouri Basin.The study will assess and analyze how thebasin’s existing water and power operations andinfrastructure will perform under different watersupply scenarios. The study will also analyze theeffectiveness of adaptation and mitigation strategies for meeting the challenges of supplyingadequate water in the future.LONG TERM RECOMMENDATIONS (6–10 YEARS) Support the implementation of water conservation incentives and measures that are adaptable to the needs of local conditions, individualwatersheds and municipalities.INTERMEDIATE TERM RECOMMENDATIONS (2–6 YEARS) Build upon the lessons learned from the UpperMissouri Basin water availability and watermanagement assessment to conduct similarstudies in other basins. The state of Montana should offer incentivesthat encourage the development of communitywells as an alternative to individual wells fordomestic water supplies. Invest in the capacity to identify and evaluate the opportunities and challenges posedby large scale forces that will influence watersupply and demand over the next twentyyears. Examples of large scale forces includebut are not limited to: energy development,demographic shifts, climate variability, theoperation of federal dams and reservoirs withinMontana and downstream states, treaties andcompacts with neighboring states and Canada,and federal actions related to threatened andendangered species. Review and revise theassessment every 5 years.INTERMEDIATE TERM RECOMMENDATIONS (4–8 YEARS) Support the efforts of state agencies, universities and others to identify and pursue researchon innovative water management and conservation strategies that are tailored to local needsand conditions.Improve and Expand Efforts toQuantify Surface Water Supplies andAvailabilityThe importance of ensuring an adequate supplyof water to meet current beneficial uses andfuture demands is a theme echoed by the fourBasin Advisory Councils throughout the planning process. Water supply across Montana iscontrolled by variability in seasonal temperatureand precipitation as well as long-term climatictrends. While the demand for water continues7to grow, physical water availability varies fromyear-to-year and can often change dramaticallybetween seasons in any given year. As a result,coping with supply and demand imbalancesis a constant feature of water management inMontana. While we cannot eliminate all supplyand demand imbalances, Montana can improveand expand efforts to gather the best scientificinformation available to quantify water suppliesand availability.MONTANA DEPARTMENT OF NATURAL RESOURCES AND CONSERVATION

Increase Flexibility to ManageAvailable Water Supplies ThroughStorage and Rehabilitation of ExistingInfrastructure Explore opportunities to increase the storagecapacity of existing state and federal reservoirswhere feasible and modify infrastructure toenable more efficient operations.Water storage is an important part of any integrated water resource management strategy.Water storage creates greater flexibility in managing available supplies to meet the multipledemands of agriculture, municipalities, industry,hydropower, fisheries, recreation and water quality. Explore the opportunities and challenges ofsecuring contract water from federal projectssuch as Hungry Horse, Canyon Ferry, Tiber,Clark Canyon and Yellowtail Reservoirs toprovide water for mitigating the effects of newappropriations.The Basin Advisory Councils and the public indicated continued support for Montana’s policy toactively pursue water storage projects if water storage is found to be the best solution for meetinggrowing needs and resolving water managementchallenges (85-1-703, MCA). However, traditionallarge-scale storage projects are expensive toplan, construct, operate and maintain. The prospect of constructing new large storage projects inMontana is limited by the availability of suitablelocations, cost, public support, the need to mitigate environmental impacts, as well as the limitedlegal and physical availability of water. Smaller storage projects can improve water availability withinthe year, but lacking significant carry-over storage,may not be effective tools for mitigating water-supply shortages during an extended drought. Otheroptions to explore include retrofitting current storage infrastructure to increase the amount of waterstored and modernizing outlet works to enablemore efficient operation. Work with the Legislature to make fundingavailable to share in the cost of upgrading andrehabilitating existing water conveyance infrastructure. The state will work with willing stakeholders to develop public-private partnershipsand innovative funding strategies for projectsthat cannot be completed within the state’scurrent funding programs.Another important tool for stored water management is the modification of policies and purposesgoverning project operations that define how andwhen water is stored or released, and for whatpurpose (e.g. irrigation, hydropower, instream flow,recreation).Integrate Natural Storage to BenefitWater Supplies and EcosystemsINTERMEDIATE TERM RECOMMENDATIONS (2–6 YEARS) Work with state and federal reservoir operatorsto evaluate policies and purposes that considermultiple benefits and provide additional waterto meet other beneficial uses if water is legallyavailable and without jeopardizing the originalauthorized use of the reservoir. Work with willing stakeholders to identify basinswhere high spring flows are physically andlegally available for storage.LONG TERM RECOMMENDATION (6–10 YEARS) Work with the Legislature to make fundingavailable to share in the cost of developingadditional water storage infrastructure. The statewill work with willing stakeholders to developpublic-private partnerships and innovativefunding strategies for projects that cannot becompleted within the state’s current fundingprograms.Existing natural systems, such as riparian areas,floodplains and wetlands act to slow runoff andpromote groundwater recharge; effectively storingwater and releasing it slowly back to the surfacewater system. In this way, these natural systemsfill a role similar to traditional reservoirs. Thehydrologic characteristics of these natural systemsalso improve water quality. Artificial recharge ofalluvial aquifers and floodplains may also provideadditional opportunities to store water whenthe physical supply exceeds downstream legalTHE MONTANA STATE WATER PLAN 2015 EXECUTIVE SUMMARY8

demands. Integrating existing natural systemsand promoting the protection and restoration ofnatural systems into Montana’s water management practices will support late season flows, helpto mitigate the impact of drought cycles, andprovide environmental benefits.SHORT TERM RECOMMENDATIONS (0–2 YEARS) DNRC will explore the water right implicationsof integrating natural storage and artificial aquifer recharge into Montana’s water use administration. DNRC will work with stakeholders to identify and develop at least one pilot project toquantify the capacity and explore the waterright implications of using natural storage toenhance water supplies in smaller watersheds.INTERMEDIATE TERM RECOMMENDATIONS (2–6 YEARS) DNRC will work with stakeholders to investigate the feasibility, cost effectiveness, andwater right implications of using the naturalstorage capacity of wetlands, riparian areas, orfloodplains to enhance water management in asmaller watershed. DNRC will work with stakeholders and theMontana Bureau of Mines and Geology toinvestigate the feasibility and potential forusing aquifer storage and recovery tools tomeet local water needs. The investigation willinclude the geologic conditions required foraquifer storage and recovery, potential adverseeffects to surface water flows, financial feasibility, and water right implications.Support and Expand Existing DroughtPreparedness and Planning EffortsDrought is part of Montana’s natural hydrologicregime. Almost any part of the state can experience drought conditions in any given year. Climatologists can now forecast climate anomalies,such as El Niño, six to nine months in advance ofonset. El Niño events have a consistent record ofbringing warmer temperatures and below normalprecipitation to Montana over the winter monthsresulting in below average water content of the9mountain snowpack, an early spring runoff, andsurface water shortages. Accurate forecastingof El Niño and other weather related events canprovide up to a year of lead time to assist planning and to develop mitigation strategies.Drought preparedness requires a collaborativeapproach within small- to medium-sized watersheds. Working together, water users and watermanagement agencies can develop adaptivemanagement strategies that can yield benefitsto water supply, fisheries, and water quality.Adaptive management also requires effectivecoordination between state and federal agenciesresponsibile for managing water supply, waterquality, fisheries, and drought and water supplyforecasting. Successful adaptive management isfacilitated by ready access to information aboutstream flow, water rights, water quality andaquatic habitat.SHORT TERM RECOMMENDATIONS (0–2 YEARS) Support the development of drought management plans in small to medium size watersheds. Assess potential threats to the state’s watersupply and economy resulting from extendedperiods of drought and increased climatevariability by partnering with appropriate stateand federal agencies to conduct one c

Lenny Duberstein, Ken Frazer, John LaFave, Scott Opitz, Mike Philbin, Denise Wiedenheft Project Staff and Consultants Barb Beck – Facilitator, Susan Gilbertz – Facilitator, Sue Higgins – Facilitator, Bill Milton & Wendy Beye – Facilitator / Writer