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22— BANKS LAKE AND POTHOLES RESERVOIR RECREATION

GOVERNMENT 

Storage KSU LIBRARIES 

HEARING

BEFORE THE

SUBCOMMITTEE ON

IRRIGATION AND RECLAMATION

OF THE

COMMITTEE ON

INTERIOR AND INSULAR AFFAIRS

63u1 UNITED STATES SENATE

cow EIGHTY-EIGHTH CONGRESS

SECOND SESSION

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ON

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4:1 S. 2493

A BILL TO AUTHORIZE THE SECRETARY OF THE INTERIOR TO

DETERMINE THAT CERTAIN COSTS OF OPERATING AND MAINTAINING BANKS LAKE AND POTHOLES RESERVOIR ON THE

COLUMBIA BASIN PROJECT FOR RECREATIONAL PURPOSES

ARE NONREIMBURSABLE

MARCH 3, 1964

Printed for the use of the

Committee on Interior and Insular Affairs

*

U.S. GOVERNMENT PRINTING OFFICE

30-354 WASHINGTON : 1964

a.
COMMITTEE ON INTERIOR AND INSULAR AFFAIRS

HENRY M. JACKSON, Washington, Chairman

CLINTON P. ANDERSON, New Mexico

ALAN BIBLE, Nevada

FRANK CHURCH, Idaho

ERNEST GRUENING, Alaska

FRANK E. MOSS, Utah

QUENTIN N. BURDICK, North Dakota

CARL HAYDEN, Arizona

GEORGE McGOVERN, South Dakota

GAYLORD NELSON, Wisconsin

HERBERT S. WALTERS, Tennessee

JERRY T. VERICLER, Staff Director

THOMAS S. FOLEY, Special, Counsel

THOMAS H. KUCHEL, California

GORDON ALLOTT, Colorado

LEN B. JORDAN, Idaho

MILWARD L. SIMPSON, Wyoming

E. L. MECHEM, New Mexico

PETER H. DOMINICK, Colorado

SUBCOMMITTEE ON IRRIGATION AND RECLAMATION

FRANK E. MOSS, Utah, Chairman

CLINTON P. ANDERSON, New Mexico

HENRY M. JACKSON, Washington

FRANK CHURCH, Idaho

QUENTIN N. BURDICK, North Dakota

CARL HAYDEN, Arizona

THOMAS H. KUCHEL, California

GORDON ALLOTT, Colorado

LEN B. JORDAN, Idaho
CONTENTS

Page

S. 2493 1

Departmental report:

Interior 2

STATEMENTS

Langley, Maurice N., Acting Chief, Division of Irrigation and Land Use,

Bureau of Reclamation; accompanied by Roy H. Boyd, Irrigation

Branch, and H. T. Nelson, regional director at Boise, Idaho 

Magnuson, Hon. Warren G., for himself and Hon. Henry M. Jackson, U.S.

Senators from the State of Washington 

Richardson, John, supervisor of reclamation, and secretary, Columbia

Basin Commission, State of Washington 

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BANKS LAKE AND POTHOLES RESERVOIR

RECREATION

TUESDAY, NARCH 3, 1964

U.S. SENATE,

SUBCOMMITTEE ON IRRIGATION AND RECLAMATION,

OF THE COMMITTEE ON INTERIOR AND INSULAR AFFAIRS,

Washington, D.C.

The subcommittee met, pursuant to notice, at 9:40 a.m. in room

3110, New Senate Office Building, Senator Frank E. Moss presiding.

Present: Senators Moss, Jackson, Church, Burdick, Allott, and

Jordan.

Also present: Jerry T. Verkler staff director; Thomas S. Foley,

special counsel; Stewart French, chief counsel; Richard W. C. Fa&nor,

professional staff member Roy W. Whitacre, professional staff member; Richard Andrews, minority counsel; and Robert Bendt, professional staff member.

Senator Moss. The Subcommittee on Irrigation and Reclamation

will come to order.

We are hearing witnesses today on S. 2493, sponsored by the two

Senators from Washington, Senator Jackson, who is the chairman of

the Senate Committee on Interior and Insular Affairs, and Senator

Magnuson, a bill to authorize the Secretary of the Interior to determine that certain costs of operating and maintaining Banks Lake and

Potholes Reservoir on the Columbia Basin project for recreational

purposes are nonreimbursable.

I will print the bill and the report from the Department of the

Interior at this point and then we will hear testimony from the

sponsors of the bill and other witnesses.

(The bill and report follow:)

[S. 2493, 88th Cong., 2d sess.1

A BILL To aut horize the Secretary of the Interior to determine that certain costs of operating and maintaining Banks Lake and Potholes Reservoir on the Columbia Basin project for recreational purposes are

nonreimbursable

=iv

Be it enacted by the Senate and House of Representatives of the United States of

America and Congress assembled, That, pending complete development of the

Columbia Basin project, Washington, the Secretary of the Interior is authorized,

when estimated benefits will at least equal added costs, to operate and maintain

Banks Lake and Potholes Reservoir of said project, for recreational purposes,

consistent with authorized project functions, valid contracts, and within limits

of pump and canal capacities, and that any increased operation and maintenance

costs for filling of the reservoirs and for maintaining water levels for the benefit

of recreational purposes, including fishing and hunting, as determined by the

Secretary of the Interior shall be nonreimbursable and nonreturnable.

1
2 BANKS LAKE AND POTHOLES RESERVOIR RECREATION

U.S. DEPARTMENT OF THE INTERIOR,

OFFICE OF THE SECRETARY,

Washington, D.C., March 2, 1964.

Hon. HENRY M. JACKSON,

Chairman, Committee on Interior and Insular Affairs,

U.S. Senate, Washington, D.C.

DEAR SENATOR JACKSON: This responds to your request for the views of this

Department on S. 2493, a bill to authorize the Secretary of the Interior to determine that certain costs of operating and maintaining Banks Lake and Potholes

Reservoir on the Columbia Basin project for recreational purposes are nonreimbursable.

We recommend enactment of the bill with an amendment suggested below.

S. 2493 would authorize the Secretary of the Interior, pending completion of the

Columbia Basin project, to operate and maintain Banks Lake and Potholes

Reservoir in that project for the purpose of recreation as well as presently authorized project purposes. The bill would impose certain qualifications on operation

for recreation purposes; these are that the estimated additional benefits from that

purpose shall at least equal the added costs attributable to it, and that operation

shall be consistent with other authorized project functions, valid contracts, and

within limits of pump and canal capacities. The increased operation and maintenance costs incurred in filling the reservoirs and maintaining water levels for

recreation, including fishing and hunting, are made nonreimbursable by the bill.

Banks Lake is an equalizing reservoir of the Columbia Basin project. It is at

a higher elevation than Franklin D. Roosevelt Lake behind Grand Coulee Dam,

and it is filled by pumping from the mainstream reservoir. Potholes Reservoir

is a reregulating facility that obtains its water supply from Banks Lake and from

project return flows. Recreation is not one of the authorized purposes of the

project, and therefore, under existing authority operation of these reservoirs

cannot be tailored to serve the recreation needs and desires of the area unless the

water users bear the additional costs. As Banks Lake and Potholes Reservoir

are now operated for irrigation alone the water level fluctuates rather widely,

particularly during the summer season. This is undesirable from the standpoint

of recreation use.

If the authority that S. 2493 would grant were extended to the Secretary of

the Interior, the pumping schedule into Banks Lake would be altered when conditions permitted to reduce fluctuations there and at Potholes Reservoir, and the

additional costs associated with the modified pumping schedule would be nonreimbursable. With this change in operation it is estimated that general recreation use of the reservoirs would increase by about 25 percent, producing additional

benefits evaluated at an annual average of $143,000. Modification of the pumping

schedule would involve added costs estimated to average $59,000 per year. Thus,

this would be an economically justified method of operation, as, on an incremental

basis, the benefits would exceed the costs in the ratio of 2.42 to 1.

A study by the Bureau of Reclamation has indicated that water supplies in the

Columbia River will probably be adequate to achieve optimum operation for

recreation purposes in 4 years out of the next 7. In other years the limitations

of available water supply or other conditions would probably limit pumping for

recreation purposes to some degree.

Under the present method of operation these reservoirs now produce sizable

recreation benefits. To clarify the limitation in the bill that additional costs that

may be incurred for recreational purposes shall be limited in amount to the additional benefits that the proposed pumping operation for recreation would generate,

the word "added" should be inserted after the word "estimated" in line 5, page 1.

A comprehensive, long-term study of operations and benefits of the entire

Columbia Basin project is now underway. Among other things, this investigation

will evaluate the costs and benefits of providing larger, assured water supplies to

accomplish fish and wildlife and recreation purposes at various facilities at or on

the project, including Banks Lake, Potholes Reservoir, and the Columbia National

Wildlife Refuge, which is on Crab Creek below Potholes Reservoir. Enactment

of S. 2493 will permit the opportunities for increased recreation at these two

reservoirs to be used during the interim period until the projectwide study is

completed. A further benefit from interim operation of the reservoirs for recreation purposes would accrue from additional water that would be available from

time to time for use on the Columbia National Wildlife Refuge. This additional

water, with its attendant benefits, will not be assured in any given year. Therefore, the fish and wildlife benefits were not included in the economic analysis establishing the justification for interim operation for recreation purposes.
BANKS LAKE AND POTHOLES RESERVOIR RECREATION 3

The Bureau of the Budget has advised that while there is no objection to

presentation of this report it has not been afforded an opportunity to explore a

number of questions and problems raised by S. 2493 and the Department's proposed report, and that accordingly the Bureau of the Budget suggests that the

committee defer action on the bill until an adequate review can be made and

appropriate recommendations submitted for the consideration of the committee.

Sincerely yours,

KENNETH HOLUM,

Assistant Secretary of the Interior.

Senator Moss. Senator Magnuson will now testify on S. 2493.

STATEMENT OF HON. WARREN G. MAGNUSON, FOR HIMSELF

AND HON. HENRY M. JACKSON, U.S. SENATORS FROM THE

STATE OF WASHINGTON

Senator MAGNUSON. I will put the statement in the record on

behalf of Senator Jackson and myself.

(The joint statement follows:)

PREPARED STATEMENT OF HON. WARREN G. MAGNUSON,. ON BEHALF OF HIMSELF

AND HON. HENRY M. JACKSON, SENATORS FROM THE STATE OF WASHINGTON

Mr. Chairman, I note that your subcommittee will also consider this morning

S. 2493, a bill to authorize the Secretary of the Interior to determine that certain

costs of operating and maintaining Banks Lake and Potholes Reservoir on the

Columbia Basin project for recreational purposes are nonreimbursable. With

your permission, I should like to make the following remarks on behalf of myself

and my colleague, the distinguished chairman of the full Interior Committee, to

be inserted at the appropriate place in the record.

The development of the strong recreational potential of the whole Columbia

Basin is not only a matter of crucial economic significance to the areas involved

but also the development is of considerable national and regional significance.

It benefits a constantly increasing number of visitors to the Columbia Basin from

all parts of the United States.

Banks Lake and Potholes Reservoir are situated, respectively, in the Douglas

and Grant County areas of Washington. As an indication of the compelling need

for vigorous development of these two counties, it should be emphasized that

they both are areas of substantial unemployment already determined eligible

under the various Federal programs to help local communities help themselves in

strengthening their own economies.

Local organizations, such as the Coulee City Chamber of Commerce, the

Joint Fishing Development Committee of the Grand Coulee and Coulee Dam

Chambers of Commerce, and the Wilbur Chamber of Commerce, have already

done yeoman service toward meeting local responsibility for recreational development.

This proposal will provide the necessary Federal help. It will enable the

Bureau of Reclamation to maintain Banks Lake with minimal fluctuations between May 1 and September 1 during at least 4 or 5 of the next 7 years (contingent upon project operations).

It is important to realize that fluctuations on Banks Lake range usually between 8 and 14 feet. These fluctuations are wholly disruptive of sustained and

orderly recreational development.

We should also suggest that legislative action to cut down fluctuations at the

Potholes Reservoir in Grant County merits your prompt and sympathetic consideration. In this connection, we cannot overlook the considerable impact that

recreation now has in the Grant County area. Local interests have pointed

out that Grant County now has 85,000 acre-feet of surface water that can be

used for recreational purposes. Before 1953, Grant County had none.

When irrigation requirements permit, the extra pumped water authorized

under this bill's provisions could reduce the fluctuation at Potholes Reservoir in

August and September. The fluctuation there now varies from around 10 to 15

feet and will increase to about 25 feet at the time of full project development.

The annual estimated costs of $21,000 for Banks Lake and $38,000 for Potholes

Reservoir would be classed as nonreimbursable and nonreturnable under this

proposal's provisions.
4 BANKS LAKE AND POTHOLES RESERVOIR RECREATION

Mr. Chairman, we solicit your support for timely Senate action on S. 2493,

whose recreational benefits will outrun these costs by more than 2 to 1.

Senator MAGNUSON. It is difficult to project the values that will

come from keeping the water levels proper on the reservoir in the

Banks. Last week in my committee upstairs we had long discussions

with Fish and Wildlife and other people, the National Wildlife

Foundation, all of the people on this problem. This could be one

of the key units in the eastern Washington area if we kept it at the

proper level for recreation, fish and wildlife development. Senator

Jordan, in view of his work on the International Joint Commission, is

familiar with that area.

Senator JORDAN. I am.

Senator MAGNUSON. It could be a tremendous thing for everybody

in the whole Northwest for these features, and it is so simple to do

what Senator Jackson and myself have suggested to the committee.

I don't know what the benefit-to-cost ratio is but it might be even

greater if you project it in this project. I would like to state that any

questions that you have Mr. HaHauer can answer in detail. Also the

two members of the Whitestone project who are here can answer your

questions.

Senator JACKSON. I want to express my appreciation to my senior

colleague for his very fine statement.

Senator Moss. Thank you, Senator Magnuson.

The next witness will be John Richardson.

STATEMENT OF JOHN RICHARDSON, SUPERVISOR OF RECLAMATION, AND SECRETARY, COLUMBIA BASIN COMMISSION, STATE

OF WASHINGTON

Mr. RICHARDSON. The measure before the committee today, S. 2493,

offers a practical solution to resolve a conflict between a primary

purpose of the Columbia Basin project, irrigation, and the everincreasing hunting, fishing, and recreational benefits derived from the

project.

These figures I may tell you about now are accurate. They have

just been compiled by our game department and they are rather

exceptional.

Banks Lake, the project equalizing reservoir, contains 24,000 acres

of trout, bass, perch, crappie, and bluegill fishing waters. Our State

game department reports that in 1963 fishermen utilized the lake to

the extent of 60,000 man-days. They harvested an estimated 175,000

fish.

Picnicking and camping was estimated at 86,000 man-days; waterfowl hunters, 2,000 man-days; and pheasant hunters, 500 man-days.

Potholes Reservoir, 28,200 acres in size, attracted fishermen for

85,000 man-days and they harvested 750,000 fish. Other use of the

Potholes included 45,500 man-days for picnicking and camping,

19,500 man-days for waterfowl hunters, and 500 man-days for pheasant

hunters.

The Potholes has become the major duck and goose hunting area

in the State. A December 1963 count by the game department

showed 175,000 ducks at the Potholes. At times this has gone up

to as high as 240,000.
BANKS LAKE AND POTHOLES RESERVOIR RECREATION 5

S. 2493 provides that additional pumping and related costs required

to stabilize these reservoirs for boat access and other recreational

benefits be nonreimbursable and nonreturnable when these costs are

at least equal to benefits.

I am certain that these hunting and fishing benefits far exceed the

cost.

We feel that it is proper that these costs he borne generally, so that

maximum public benefits may be derived from these recreational

aspects of the Columbia Basin project.

Thank you very much for this opportunity to appear before the

committee today.

Senator Moss. What amount are we talking about? How much

is this going to cost additionally to maintain these levels?

Mr. RICHARDSON. I believe, sir, they are approximately $28,000

annually on Banks and $39,000 on the Potholes.

Senator Moss. This would be a nonreimbursable charge for recreation?

Mr. RICHARDSON. Yes, sir.

Senator JACKSON. In other words, when the project is authorized,

they didn't take into consideration the recreational possibilities of it,

and this, Mr. Chairman, is an effort to recognize this development

that has occurred in the last few years.

The overall project of course when completed will run about $800

million, so this is a very small item in the total aggregate of multipurpose development.

Senator Moss. Thank you, Mr. Richardson.

Mr. RICHARDSON. Thank you.

Senator Moss. We appreciate it very much.

Now Mr. Langley, the Acting Chief, Division of Irrigation and

Land Use of the Bureau of Reclamation and also Mr. Boyd of the

Irrigation Branch are here.

We will ask you gentlemen to come forward. You have prepared

statements. They will be placed in the record in full as though read

and we will ask you to comment on them as you see fit.

Mr. Langley.

STATEMENT OF MAURICE N. LANGLEY, ACTING CHIEF, DIVISION

OF IRRIGATION AND LAND USE, BUREAU OF RECLAMATION;

ROY H. BOYD, IRRIGATION BRANCH, BUREAU OF RECLAMATION; AND H. T. NELSON, REGIONAL DIRECTOR AT BOISE,

IDAHO

Mr. LANGLEY. Thank you, Mr. Chairman. In view of the excellent statements that have already been made and the familiarity of

the committee with this area, I will only hit a few highlights.

I am Maurice Langley, Acting Chief of the Division of Irrigation

and Land Use. I have with me Regional Director Nelson and Roy H.

Boyd, hydraulic engineer in our division.

The bill before you, S. 2493, would authorize the Secretary of the

Interior to determine that certain costs of operating and maintaining

Banks Lake and Potholes Reservoir for recreation purposes are nonreimbursable. Qualifications imposed by the bill are that the estimated additional benefits shall, at least, equal the added costs and
6 BANKS LAKE AND POTHOLES RESERVOIR RECREATION

that the operation shall be consistent with authorized project functions, valid contracts, and within limits of pump and canal capacities.

This bill is intended as an interim arrangement pending complete

development of the Columbia Basin project. A comprehensive longrange study of total project operations and benefits is now underway.

It indicates that there may be justification for reauthorizing legislation which would consider additional benefits such as recreation and

fish and wildlife, and the reallocation of project costs and benefits.

Most of you are familiar with the details of the Columbia Basin

project. To save the committee's time, we will furnish for the files a.

reprint from our project data book which describes the project purposes and benefits, and includes a small map showing Banks Lake

and Potholes Reservoir.

PRESENT OPERATIONS

As a normal operation, irrigation withdrawals from Banks Lake

begin in late March and the reservoir recedes until pumping begins.

Pumping to Banks Lake begins about mid-April, but is at a reduced

rate because of limited available power (power requirements are

coordinated with Bonneville Power Administration), and/or low

water level in Franklin D. Roosevelt Lake. It usually is not until

some time in May that the pumping rate exceeds the withdrawal rate.

Then, with the pumping rate in excess of irrigation demands, the

reservoir level rises until late September, when it is at the maximum

level of 1,570. After pumping to Bank4 Lake is discontinued about

October 1 (again correlated with other power requirements), the reservoir storage gradually declines because of irrigation withdrawals until

the end of the irrigation season. The reservoir level then remains

nearly constant at about 1,565 elevation during the nonirrigation

season.

Under the present irrigation operations, both Banks Lake and

Potholes Reservoir fluctuate considerably during the year. These

fluctuations are normal for such equalizing and reregulating reservoirs

in an irrigation system, but they have a very detrimental effect upon

recreational uses of the reservoirs. There are years when the available

water supply and other conditions would permit pumping additional

water to reduce reservoir fluctuations, but this would involve additional

pumping costs. Under the present project authorization such operating costs are reimbursable. We do not believe it is appropriate or

consistent with longstanding policy to include such costs in the water

charges of the irrigation districts.

BENEFITS FROM MODIFIED OPERATIONS

Studies indicate that during the next 7-year period there will

probably be, at least, 4 years when operating conditions (water supply,

power requirements, and canal capacities), will be such that it would be

economical to modify reservoir operations to benefit recreation.

You asked about costs during these years the average benefits

resulting from the reduction of reservoir fluctuations would provide

recreational benefits estimated to be $60,000 for Banks Lake and

$83,000 for Potholes Reservoir, for a total annual benefit of $143,000.

II
BANKS LAKE AND POTHOLES RESERVOIR RECREATION 7

The average added annual operating costs are estimated to be $21,000

for Banks Lake and $38,000 for Potholes Reservoir, for a total added

cost of $59,000. The overall benefit-cost ratio would be 2.42 to 1.

In an estimate 3 years out of 7, when conditions would not permit

pumping for recreation because of interference with commitments for

power production and delivery of water for irrigation, little or no added

costs for recreation would be incurred.

As I mentioned earlier, a comprehensive, long-term study of operations and benefits of the entire Columbia Basin project is now underway. Among other things, this investigation will evaluate the costs

and benefits of providing larger assured water supplies to accomplish

fish and wildlife and recreation purposes at various facilities at or on

the project, including Banks Lake, Potholes Reservoir, and the Columbia National Wildlife Refuge, which is on Crab Creek below Potholes Reservoir. Enactment of S. 2493 will permit the opportunities

for increased recreation at these two reservoirs to be used during the

interim period until the projectwide study is completed.

A further benefit from interim operation of the reservoirs for recreational purposes would accrue from additional water that would be

available from time to time for use on the Columbia National Wildlife Refuge. This additional water, with its attendant benefits, will

not be assured in any given year. Therefore, the fish and wildlife

benefits were not included in the economic analysis establishing the

justification for interim operation for recreation purposes.

Since it is not a permanent arrangement we have not computed

those additional benefits but these are typical of the added benefits

that would accrue.

Among the potential enlargements and modifications of the project

now under study are the third powerplant at Grand Coulee Dam, the

possibility of use of Banks Lake for pump storage for peaking power

generation, and the 367,000 acres to be irrigated under the proposed

East High Canal. Operation of the reservoirs in the event any or all

of these plans materialize may be substantially different than we have

assumed in computing the feasibility of interim recreation use of the

reservoirs. Under long-range conditions, it may be found necessary

to modify operations for recreation purposes because these additional

developments could result in fluctuation in Banks Lake and Potholes

Reservoir as great, or greater, than existed in the past.

Therefore, we believe that enactment of S. 2493 would provide a

practical and financially sound basis on which to operate Banks Lake

and Potholes Reservoir during the interim period while these longrange studies and project development are proceeding.

The word "added" should be inserted after the word "estimated"

in line 5, page 1. We believe that would clarify the bill.

Senator Moss. What we believe this would amount to is the additional cost for pumping water at various times to keep the level of the

reservoir up rather than draw it down as has been done before.

Mr. LANGLEY. This is the largest single added cost. The additional pumping results from several things. There will be some added

evaporation from lakes at the higher levels. There will be some

pumping against slightly added head at certain seasons of the year.

There will be a few other miscellaneous costs such as operation of

canals to move the water down to Potholes Lake and some riprapping

perhaps.
8 BANKS LAKE AND POTHOLES RESERVOIR RECREATION

Senator CHURCH. If, when this project was originally authorized,

the present formula for allocating a certain portion of the cost to

recreation on a nonreimbursable basis had been used, would that

formula have provided as much as is here asked for in this bill?

Mr. LANGLEY. I would assume it would have and it probably would

have covered other recreational aspects of the project which would be

much greater and these are some of the things that are now underway.

Senator CHURCH. What you are asking us now to do is modest in

comparison with the formula we have now accepted for nonreimbursable costs allocated to recreational benefits?

Mr. LANGLEY. That is correct. A small interim measure while

making a long-range study of the project.

Senator JACKSON. As a matter of fact if you went back retroactively

and used the present formula when the Columbia Basin project was

authorized there would be much more money in here that could be

justified for recreation, is that correct?

Mr. LANGLEY. That is correct.

Senator JACKSON. Compared with other projects the amount here

that we are talking about is insignificant in relation to the total

investment of almost $800 million. This is the largest project in the

country except for some new ones that are being considered.

Senator Moss. Thank you very much, Mr. Langley. Senator

Jordan, do you have any questions?

Senator JORDAN. No questions.

Senator Moss. Thank you, and I thank you other gentlemen for

coming.

We appreciate the very direct and succinct testimony.

If there are no further witnesses that will conclude the hearing on

S. 2493.

(Whereupon the committee turned to other business.)

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