Executive Summary
Introduction
The Bureau of Reclamation (Reclamation) has developed this planning report and draft environmental impact statement (PR/DEIS) pursuant to Public Law 92-199 and the general authority to conduct water resources planning under the Reclamation Act of 1902 and all acts amendatory thereof and supplementary thereto. This document was undertaken to provide a discussion on (1) various ways to provide a municipal and industrial (M&I) water supply to the Navajo Nation, city of Gallup, and the Jicarilla Apache Nation and (2) the associated potential environmental impacts and costs of such an endeavor, should it be undertaken. Reclamation, however, does not have the current substantive or budgetary authorization that is required to construct, operate, and maintain any proposed facilities discussed in this PR/DEIS.It will take an act of Congress to provide such authority.In addition, Reclamation takes no position on whether such a project should be authorized.The indication of a preferred alternative is solely to meet the requirements of the National Environmental Policy Act (NEPA) and is not an indication that a particular alternative should be pursued since, as noted earlier, there is no project authorization that would allow Reclamation to commence this project.
Finally, we are aware that the Navajo Nation and the state of New Mexico have reached an agreement concerning the Navajo Nation’s water rights in the San Juan River Basin in New Mexico and that a part of the proposed settlement is the construction, operation, and maintenance of the Navajo-Gallup Water Supply Project (proposed project). We wish to be clear that neither Reclamation, the Department of the Interior, nor the Administration has taken a position on the San Juan River Basin in New Mexico Navajo Nation Water Rights Settlement Agreement executed between the Navajo Nation and the State of New Mexico and that nothing herein is any indication of any position regarding the overall settlement. The cost analysis contained in this PR/DEIS is based on an appraisal level of analysis. As part of Reclamation’s efforts to attain greater transparency and accountability with regards to its engineering analyses, the cost estimate is being re-priced.This means that instead of updating the 2005 cost estimates using engineering cost indices, the components of the proposed project will be individually re-priced in order to gain greater confidence in the estimate. Once the re-pricing is completed, which we anticipate to occur during the 90-day public comment period, Reclamation will update the PR/DEIS through an addendum or potentially the use of errata sheets.
Reclamation historically supports projects for construction after a feasibility report is completed, which includes a feasibility-level cost estimate. This appraisal-level cost estimate does not meet that requirement. Additional analysis, detail, and updating of the appraisal-level cost estimates presented in this draft report are needed before project construction authorization can be supported. Failure to complete this additional effort may result in reliance on a cost estimate for the project that is not sufficient to characterize the expected project cost. The appraisal-level design must be upgraded to feasibility level before Reclamation would begin construction. The cost of, and time for, completing this additional work would be substantial.
Navajo-Gallup Water Supply Project
The proposed project would convey a reliable M&I water supply to the eastern section of the Navajo Nation, the southwestern part of the Jicarilla Apache Nation, and the city of Gallup via diversions from the San Juan River in northern New Mexico. The Navajo Nation, city of Gallup, and the Jicarilla Apache Nation are part of the project Steering Committee that assisted in preparation of portions of this document.
Navajo Nation communities and the city of Gallup rely on a rapidly depleting groundwater supply that is inadequate to meet present needs and anticipated growth. Other water sources are needed to meet current and future M&I demands of more than 43 Navajo chapters, including the communities of Fort Defiance and Window Rock in Arizona, the city of Gallup, and the Teepee Junction area of the Jicarilla Apache Nation.
The proposed project would deplete approximately 35,893 acre-feet of water annually from the San Juan River (Navajo Nation - 27,193 acre-feet, Jicarilla Apache Nation - 1,200 acre-feet, city of Gallup - 7,500 acre-feet). Based on the expected populations in the year 2040, the proposed project would serve approximately 203,000 people in 43 chapters in the Navajo Nation, 1,300 people in the Jicarilla Apache Nation, and approximately 47,000 people in the city of Gallup.
Planning Process
Project planning has been intermittent over the past40 years. Drawing from past analysis and projecting water needs and environmental conditions into the next 40 years have provided the basis for the planning work described in this report.
A project Steering Committee included representatives from the Navajo and Jicarilla Apache Nations, city of Gallup, state of New Mexico, Bureau of Indian Affairs (BIA), Indian Health Service (IHS), Navajo Tribal Utility Authority (NTUA), Northwest New Mexico Council of Governments, and Reclamation. The Steering Committee was formed in the early 1990s to guide the direction of this proposed project, provide technical analysis, support public involvement, provide political background, and conduct overall project coordination. Reclamation has provided planning, engineering, and environmental expertise to this committee.
Funding for project planning has mostly been through annual congressional write-in funds and cost sharing by the Navajo and Jicarilla Apache Nations and the city of Gallup. The level of analysis-appraisal verses feasibility level work-has been tailored to stay within the funds available.
To expedite planning and environmental steps, it was decided that this document would be a combined PR/DEIS. This document complies with the Economic Principles and Guidelines for Water and Related Land Resources Implementation Studies (Principles and Guidelines) and NEPA.
The NEPA process began with publishing of a Notice of Intent in the Federal Register on March 27, 2000. Scoping meetings were held at five locations in April and May 2000: Crownpoint, Gallup, Shiprock, and Farmington, New Mexico and Saint Michaels, Arizona. The meetings were moderately attended, with a range of 15 to 50 people per meeting. The most common comments from these meetings were that there is a great need for a reliable M&I water supply throughout the proposed project area, that existing groundwater is in limited supply, and that the water is usually of poor quality.
The Navajo and Jicarilla Apache Nations and the city of Gallup provided their current and projected populations and associated M&I water needs to year 2040. An estimated water use rate of 160 gallons per day per person was used for the proposed project design as requested by the Navajo and Jicarilla Apache Nations. It was assumed that available groundwater would continue to be used and that project water would provide the remaining need.
The Steering Committee identified possible alternatives to meet current and future water needs. It was determined in all past studies, as well as in this study, that the San Juan River was the only sustainable source of water. Therefore, all the viable alternatives involved treating river water for use throughout the proposed project area.
Water conservation is currently well established in the proposed project area, and although additional conservation would reduce water use, it would not be enough to provide for future water needs. It is assumed that water conservation will continue with all project alternatives considered.Six physically different, viable alternatives were identified to bring San Juan River water to the proposed project area. These alternatives all would provide the same quantity of treated water to the same delivery locations. The variables included where the water would be diverted and the location of the alternatives’ facilities.Maximizing the use of existing facilities and information were important factors in the design of the alternatives. All alternatives use Navajo Reservoir and Navajo Indian Irrigation Project (NIIP) facilities to some extent and have the same Gallup Regional System supplying water to the city of Gallup and surrounding Navajo chapters.
Preferred Alternative
The SJRPNM Alternative would divert water from the San Juan River downstream of Fruitland, New Mexico, just above the existing Public Service Company of New Mexico (PNM) diversion structure, treat the water to drinking water standards, and then deliver it along Highway N36 and south to Navajo chapters along U.S. Highway 491. Water would be provided to Window Rock, Arizona, and Crownpoint, New Mexico, through sublaterals. Water delivery would continue to the Navajo Nation capital of Window Rock, Arizona, and to the city of Gallup, New Mexico. Another diversion would originate at Cutter Reservoir, an existing regulating reservoir on the NIIP, and would convey water to the eastern portion of the Navajo and Jicarilla Apache Nations.