[Senate Report 106-488]
[From the U.S. Government Publishing Office]
Calendar No. 937
106th Congress Report
SENATE
2d Session 106-488
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CHANDLER PUMPING PLANT AT PROSSER DIVERSION DAM, WASHINGTON
_______
October 4 (legislative day, September 22), 2000.--Ordered to be printed
_______
Mr. Murkowski, from the Committee on Energy and Natural Resources,
submitted the following
R E P O R T
[To accompany S. 2163]
The Committee on Energy and Natural Resources, to which was
referred the bill (S. 2163) to provide for a study of the
engineering feasibility of a water exchange in lieu of
electrification of the Chandler Pumping Plant at Prosser
Diversion, Washington, having considered the same, reports
favorably thereon with an amendment and recommends that the
bill, as amended, do pass.
The amendment is as follows:
Strike out all after the enacting clause and insert in lieu
thereof the following:
SECTION 1. CHANDLER PUMPING PLANT AND POWERPLANT OPERATIONS AT PROSSER
DIVERSION DAM, WASHINGTON.
Section 1208 of Public Law 103-434 (108 Stat. 4562) is amended--
(1) in subsection (a)--
(A) in the subsection heading, by inserting ``or
Water Exchange'' after ``Electrification'';
(B) by redesignating paragraphs (1), (2), and (3) as
subparagraphs (A), (B), and (C), respectively, and
indenting appropriately;
(C) by striking ``In order to'' and inserting the
following:
``(1) Electrification.--In order to''; and
(D) by adding at the end the following:
``(2) Water exchange alternative.--
``(A) In general.--As an alternative to the measures
authorized under paragraph (1) for electrification, the
Secretary is authorized to use not more than $4,000,000
of sums appropriated under paragraph (1) to study the
engineering feasibility of exchanging water from the
Columbia River for water historically diverted from the
Yakima River.
``(B) Requirements.--In carrying out subparagraph
(A), the Secretary, in coordination with the Kennewick
Irrigation District and in consultation with the
Bonneville Power Administration, shall--
``(i) prepare a report that describes project
benefits and contains feasibility level designs
and cost estimates;
``(ii) secure the critical right-of-way areas
for the pipeline alignment;
``(iii) prepare an environmental assessment;
and
``(iv) conduct such other studies or
investigations as are necessary to develop a
water exchange.'';
(2) in subsection (b)--
(A) in paragraph (1), by inserting ``or water
exchange'' after ``electrification''; and
(B) in the second sentence of paragraph (2)(A), by
inserting ``or the equivalent of the rate'' before the
period;
(3) in subsection (d), by striking ``electrification,'' each
place it appears and inserting ``electrification or water
exchange''; and
(4) in subsection (d), by striking ``of the two'' and
inserting thereof''.
Purpose of the Measure
The purpose of S. 2163 is to provide for a study of the
engineering feasibility of using water from the Columbia River,
instead of the Yakima River or electricity, to power pumps at
the Chandler Pumping Plant at Prosser Diversion Dam,
Washington.
Background and Need
The Yakima Project in Washington State provides irrigation
water for a narrow strip of fertile land that extends for 175
miles on both sides of the Yakima River in south-central
Washington. There are seven divisions in the project, one of
which is the Kennewick Division. This Division is a combined
irrigation and power development and includes the Chandler
Powerplant and 19,171 acres or irrigable land, of which 4,637
are in the Kennewick highlands and have been irrigated for many
years. The Prosser Diversion Dam, on the Yakima River near
Prosser, is a 9-foot-high concrete weir. Two fishways are
provided to facilitate movement of fish over the dam. The
Chandler Powerplant develops 12,000 kilowatts, which are
delivered to the Bonneville Power Administration.
The Kennewick Irrigation District (KID) currently diverts
water from the Yakima River at Prosser, Washington. The water
flows down Chandler Canal to the Chandler Pump Station where it
is pumped into the KID's Main Canal. Up to 333 cubic feet per
second (cfs) of irrigation water is pumped into the Main Canal.
The pumps in Chandler Pump Station are hydraulically driven
turbine pumps which require approximately 1.25 gallons of water
to lift (pump) one gallon of water into KID's Main Canal.
Therefore, furnishing KID's irrigation and pumping water
requires a peak diversion from the Yakima River of 749 cfs. At
Chandler Pump Station, the 416 cfs used to drive the hydraulic
pumps is returned to the Yakima River. In the roughly 10-mile
stretch of the Yakima River between Prosser Dam and Chandler
Pump Station, the diversion of KID's 749 cfs can result in low
instream flows. Downstream from Chandler Pump Station, instream
flows are not as significantly impacted because water used to
drive the turbine pumps has been returned to the river.
Much of the KID's irrigated acreage is adjacent to the
Columbia River. The proximal location of KID's irrigated
acreage and the Columbia River make it possible to serve much
or all of the KID's irrigated land from the Columbia River.
Relocation of KID's diversion to the Columbia River is being
evaluated as a means of increasing Yakima instream flows and
thereby improving anadromous fish habitat.
Section 1208 of Public Law 103-434 authorized a specific
project to electrify hydraulic turbines at the Chandler Pumping
Plant. By converting these pumps from hydraulic to electrical
power, an additional 400 second feet of water would be added to
a 12-mile stretch of the Yakima River below Prosser Dam called
Chandler Reach. This project would increase survival rates and
provide important new habitat for both the anadromous and
resident fisheries. Although the electrification project is
still a good approach to augmenting Yakima River flows, early
in its implementation, an alternative idea was developed that
could nearly double the benefits projected from
electrification.
S. 2163 amends section 1208 of Public Law 103-434 to
require the Secretary of the Interior to study the engineering
feasibility of exchanging water from the Columbia River for
water historically diverted from the Yakima River. This new
approach could result in completely eliminating the need to
divert water at Prosser Dam and Wanasish Dam for use by the KID
and the Columbia Irrigation District. The plan will require
building a new pumping plant on the Columbia River and a
pipeline to connect this new facility to KID. Taking this
approach could add back to the Yakima River during critical
flow periods, the entire 749 second feet of water now diverted
at Prosser Dam.
Legislative History
S. 2163 was introduced by Senator Gorton on March 2, 2000
and a Subcommittee hearing as held on May 24, 2000. At the
business meeting on September 20, 2000, the Committee on Energy
and Natural Resources ordered S. 2163, as amended, favorably
reported.
Committee Recommendation
The Committee on Energy and Natural Resources, in open
business session on September 20, 2000, by a unanimous voice
vote with a quorum present, recommends that the Senate pass S.
2163, if amended as described herein.
Committee Amendment
During the consideration of S. 2163, the Committee adopted
an amendment in the nature of a substitute that incorporated
suggestions made by the Bonneville Power Administration at the
Subcommittee hearing. The changes are: (1) the cost of the
study is limited to $4,000,000, rather than ``such sums as
necessary;'' and (2) in conducting the study, the Secretary is
directed to cooperate with the Columbia Irrigation District (in
addition to the Kennewick Irrigation District) and consult with
the Bonneville Power Administration.
S. 2163 makes several amendments to section 1208 of Public
Law 103-434. This Act authorized appropriations to electrify
pumps at the Kennewick Irrigation District (KID). The
substantive changes made by S. 2163 authorize the Secretary of
the Interior to use up to $4,000,000 of sums already authorized
to study the engineering feasibility of exchanging water from
the Columbia River for water historically diverted from the
Yakima River. This exchange, if deemed feasible, would be done
in place of the electrification proposed in P.L. 103-434. In
carrying out the feasibility, the Secretary, in coordination
with KID and the Bonneville Power Administration, is directed
to: (1) prepare a report that describes project benefits and
contains feasibility level designs and cost estimates; (2)
secure critical right-of-ways; (3) prepare an environmental
assessment; (4) and conduct other studies and investigations as
necessary. S. 2163 also makes technical and conforming
amendments to P.L. 103-434.
In testimony on this measure at the May 24, 2000 hearing,
the Administration witness objected to the provision
authorizing the Secretary to ``secure the critical right of way
areas for the pipeline alignment'' in advance of the conclusion
of the study. The Committee chose to retain this provision
because testimony of the project sponsors indicated that the
potential for development along a small but critical section of
the necessary pipeline alignment could make later acquisition
of the necessary rights of way difficult and substantially more
costly. If the results of the feasibility study indicate that
the pump exchange is the best option for the District and the
environment--and preliminary reports suggest that such an
exchange will provide more benefits than the previously
considered electrification project--the rights of way will be
necessary and possibly not available if not acquired in
advance. If the exchange is not selected as the preferable
option, and the rights of way are then not necessary, the
Committee anticipates that the rights of way would be
reconveyed to the original holders.
Cost and Budgetary Considerations
The following estimate of costs of this measure has been
provided by the Congressional Budget Office.
U.S. Congress,
Congressional Budget Office,
Washington, DC, September 28, 2000.
Hon. Frank H. Murkowski,
Chairman, Committee on Energy and Natural Resources,
U.S. Senate, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for S. 2163, a bill to
provide for a study of the engineering feasibility of a water
exchange in lieu of electrification of the Chandler Pumping
Plant at Prosser Diversion Dam, Washington.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Rachel
Applebaum.
Sincerely,
Barry B. Anderson
(For Dan L. Crippen, Director).
Enclosure.
S. 2163--A bill to provide for a study of the engineering feasibility
of a water exchange in lieu of electrification of the Chandler
Pumping Plant at Prosser Diversion Dam, Washington
Summary: The Kennewich and Columbia Irrigation Districts in
Washington use water diverted from the Yakima River. S. 2163
would authorize the Secretary of the Interior to conduct a
feasibility study, prepare an environmental assessment, and
acquire right-of-way areas necessary to divert water from the
Columbia River rather than the Yakima River to meet the needs
of these irrigation districts.
Based on information from the Bureau of Reclamation, CBO
estimates that implementing S. 2163 would cost $6 million over
the 2001-2003 period, assuming the appropriation of the
necessary funds. Enacting S. 2163 would not affect direct
spending or receipts; therefore, pay-as-you-go procedures would
not apply.
S. 2163 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA)
and would impose no costs on state, local, or tribal
governments.
Estimated cost to the Federal Government: The estimated
budgetary impact of S. 2163 is shown in the following table.
The costs of this legislation fall within budget function 300
(natural resources and environment).
----------------------------------------------------------------------------------------------------------------
By fiscal year, in millions of dollars--
-------------------------------------------------
2001 2002 2003 2004 2005
----------------------------------------------------------------------------------------------------------------
CHANGES IN SPENDING SUBJECT TO APPROPRIATION
Estimated Authorization Level................................. 6 0 0 0 0
Estimated Outlays............................................. 1 2 3 0 0
----------------------------------------------------------------------------------------------------------------
Basis of estimate; Based on information from the Bureau of
Reclamation, CBO estimates that the feasibility study and the
environmental assessment authorized by the bill would cost $4
million, and that the acquisition of right-of-way areas for
this water diversion project would cost $2 million.
Current law authorizes the appropriation of $4 million for
an electrification project at the Chandler pumping plant.
Although S. 2163 authorizes the exchange of water as an
alternative to this electrification project, appropriated funds
for the electrification project have already been spent by the
bureau to study this project and on other activities.
Consequently, S. 2163 provides new authority to study the
exchange of water from the Yakima to the Columbia River and for
the acquisition of right-of-way areas.
Pay-as-you-go considerations: None.
Intergovernmental and private-sector impact; S. 2163
contains no intergovernmental or private-sector mandates as
defined in UMRA and would impose no costs on state, local, or
tribal governments.
Previous CBO estimate: On September 20, 2000, CBO
transmitted a cost estimate for H.R. 3986, a bill to provide
for study of the engineering feasibility of a water exchange in
lieu of electrification of the Chandler Pumping Plant at
Prosser Diversion Dam, Washington, as reported by the House
Committee on Resources on September 19, 2000. These two bills
are nearly identical, and their estimated costs are the same.
Estimate prepared by: Federal Costs: Rachel Applebaum.
Impact on State, Local, and Tribal Governments: Marjorie
Miller. Impact on the Private Sector: Lauren Marks.
Estimate approved by: Peter H. Fontaine, Deputy Assistant
Director for Budget Analysis.
Regulatory Impact Evaluation
In compliance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee makes the following
evaluation of the regulatory impact which would be incurred in
carrying out S. 2163. The bill is not a regulatory measure in
the sense of imposing Government-established standards or
significant economic responsibilities on private individuals
and businesses.
No personal information would be collected in administering
the program. Therefore, there would be impact on personal
privacy.
Little, if any, additional paperwork would result from the
enactment of S. 2163, as ordered reported.
Executive Communications
On May 10, 2000, the Committee on Energy and Natural
Resources requested legislative reports from the Department of
the Interior and the Office of Management and Budget setting
forth Executive agency recommendations on S. 2163. These
reports had not been received at the time the report on S. 2163
was filed. When the reports become available, the Chairman will
request that they be printed in the Congressional Record for
the advice of the Senate. The testimony provided by the
Commissioner of the Bureau of Reclamation at the Subcommittee
hearing follows:
Statement of Eluid L. Martinez, Commissioner, Bureau of Reclamation,
Department of the Interior
I am Eluid Martinez, Commissioner of the Bureau of
Reclamation (Reclamation). I appreciate the opportunity to
testify on S. 2163, a bill that would amend Public Law 103-434
to authorize the Secretary of the Interior (Interior), in
cooperation with the Kennewick Irrigation District (District),
to study the engineering feasibility of exchanging water from
the Columbia River for water historically diverted from the
Yakima River in lieu of electrification of the Chandler Pumping
Plant at Prosser Diversion Dam, Washington. Although the
Administration supports the authorization of the feasibility
study proposed in the legislation, we have concerns with S.
2163 as introduced. The Administration believes that any
further authorization beyond this study is premature.
The Chandler Pumping Plant is currently hydraulically
powered by water that has been diverted from the Yakima River
at Prosser, Washington. This diverted water could remain in the
Yakima River if the pumps were powered by electric motors
(electrified) or if the project lands were irrigated by water
pumped from the Columbia River (exchanged).
To date, Reclamation has pursued study of water
conservation opportunities for the Kennewick and Columbia
Irrigation Districts, including hydraulic pump electrification
and pump exchange opportunities, under its Yakima River Basin
Water Enhancement Project water conservation planning
authority. Preliminary reports suggest that a water exchange
may provide more benefits than the Chandler Electrification
Project for both the District and for fishery restoration in
the lower Yakima River.
Authorization of the feasibility study under S. 2163 is
urgently needed because of the key location of the proposed
pump exchange on the lower fifty miles of the Yakima River.
Preliminary reports suggested a very significant relationship
between Yakima River flows and the survival of migrating
juvenile salmon and steelhead below the Prosser Diversion Dam.
Delay of this project could jeopardize or lessen the positive
impact of fishery restoration activities in the entire upper
Yakima Basin above this fifty mile exchange reach. Such
activities include the Yakama Nation's Full Supplementation
Hatchery (the only supplementation hatchery in the Northwest),
fish ladders and screens, full scale water conservation
improvements, water and habitat acquisition programs including
the Governor's salmon program, and Yakama Indian Nation water
acquisition programs.
The Administration does not support the provision in S.
2163 authorizing the Secretary to ``secure the critical right
of way areas for the pipeline alignment.'' Federal
contributions for land acquisition should await the outcome of
the study. The Administration also does not support authorizing
use of project power for the water exchange until after the
study is completed.
Full feasibility studies would include a Feasibility Level
Planning/Environmental Impact Statement, full benefit and cost
analyses of the alternatives identified (both partial and full
water exchange options), and would include Endangered Species
Act consultation. We estimate the cost to complete the studies
to be about $4 million over a three-year period. The Chandler
Electrification Project was put on hold by the Regional
Director in 1998, to allow the district to pursue an exchange
option. A reconnaissance report prepared by the District shows
that a water exchange project from the Columbia River has
promise. We recommend that the feasibility level studies be
completed.
This concludes my statement. I will be glad to answer any
questions.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
the bill S. 2163, as ordered reported, are shown as follows
(existing law proposed to be omitted is enclosed in black
brackets, new matter is printed italic, existing law in which
no change is proposed is shown in roman):
PUBLIC LAW 103-434 (108 Stat. 4562)
* * * * * * *
SEC. 1206. CHANDLER PUMPING PLANT AND POWERPLANT-OPERATIONS AT PROSSER
DIVERSION DAM.
(a) Authorization of Appropriations for Electrification or
Water Exchange.--[In order to]
(1) Electrification._In order to provide for
electrification to enhance instream flows by
eliminating the need to divert water to operate the
hydraulic turbines which pump water to the Kennewick
Irrigation District, there is authorized to be
appropriated--
[(1)] (A) $50,000 to conduct an assessment of
opportunities for alternative pumping plant
locations;
[(2)] (B) $4,000,000 for construction; and
[(3)] (C) such sums as may be necessary for
the prorata share of the operation and
maintenance allocated to fish and wildlife as
determined by the Secretary.
(2) Water exchange alternative.--
(A) In general.--As an alternative to the
measures authorized under paragraph (1) for
electrification, the Secretary is authorized to
use not more than $4,000,000 of sums
appropriated under paragraph (1) to study the
engineering feasibility of exchanging water
from the Columbia River for water historically
diverted from the Yakima River.
(B) Requirements.--In carrying out
subparagraph (A), the Secretary, in
coordination with the Kennewick Irrigation
District and in consultation with the
Bonneville Power Administration, shall--
(i) prepare a report that describes
project benefits and contains
feasibility level designs and cost
estimates;
(ii) secure the critical right-of-way
areas for the pipeline alignment;
(iii) prepare an environmental
assessment; and
(iv) conduct such other studies or
investigations as are necessary to
develop a water exchange.
(b) Power for Project Pumping.--(1) The Administrator of
the Bonneville Power Administration shall provide for project
power needed to effect the electrification or water exchange as
provided in subsection (a).
(2)(A) There is authorized to be appropriated for the
Bureau of Reclamation for each fiscal year in which the
Administrator provides power under this subsection an amount
equal to the cost to the Bonneville Power Administration of
providing power under this subsection during such fiscal year.
The rate to be utilized by the Administrator in determining the
cost of power under this paragraph in a fiscal year shall be
the rate for priority firm power charged by the Bonneville
Power Administration in that fiscal year under section 7(b) of
the Pacific Northwest Electric Power Planning and Conservation
Act (16 U.S.C. 839e(b)) or the equivalent of the rate.
(B) The Bureau of Reclamation shall, using funds
appropriated pursuant to the authorization of appropriations in
subparagraph (A), reimburse the Bonneville Power Administration
for the costs of the project power provided under this
subsection. Such funds shall be available for such purpose
without fiscal year limitation.
(c) Subordination.--Any diversions for hydropower
generation at the Chandler Powerplant shall be subordinated to
meet the flow targets determined under subsection (f).
(d) Water Supply for Kennewick Irrigation District.--The
Secretary shall ensure that the irrigation water supply for the
Kennewick Irrigation District shall not be affected by
conservation, [electrification] electrification or water
exchange or subordination pursuant to this title and any
reduction in its irrigation water supply resulting from
conservation measures adopted or implemented by other entities
pursuant to this title shall be replaced by water developed
through subordination, [electrification] electrification or
water exchange or a combination [of the two] thereof.
(e) Treatment of Certain Funds.--Funds appropriated and
project power provided pursuant to this section shall be
nonreimbursable since such funds are used for fish and wildlife
purposes and such funds are not subject to cost share under
section 1203(d).
(f) Target Flows.--Target flows measured at appropriate
biological and hydrological location or locations shall be
determined by the Yakima Project Superintendent in consultation
with the System Operations Advisory Committee.