As the problem is currently narrowly framed, groundwater users will bear the major cost of achieving a solution to any problem of inadequate stream flows. But in fact many factors influence the availability of surface water at any location and at any point in time. Three examples illustrate this holistic relationship. The increased use of minimum tillage systems in agri-culture has influenced runoff to streams and hence the supply of surface water. If federal farm policies relative to these agricultural practices were changed, then surface water flows would be altered.
Arid states control urban water applications for lawns, golf courses, and parks.
If Nebraska adopted similar policies, surface water and groundwater supplies would be affected. The federal Endangered Species Act provides the basis for establishing flow requirements in streams. If a modified Endangered Species Act was adopted which approached the maintenance of biological diversity in a different manner, surface water and groundwater avail- ability would be changed. Framing the policy problem in this broader manner makes more legislative activity necessary. Because both state and federal legislative activity is required, it is more difficult to solve the problem quickly.