The Sacramento-San Joaquin Delta: It’s complicated.
Consider: The Bay Delta watershed spans 75,000 square miles, stretching over 500 miles from the Cascade Range to the Tehachapi Mountains. Nearly half of California’s surface water originates as rain or snow in this watershed. The Delta’s hundreds of miles of waterways and 50+ islands provide abundant opportunities for boating, kayaking, bicycling, bird watching, camping, fishing, hunting, and more. There are museums, art galleries, wineries, and historic towns. It is one of the most productive agricultural regions in the United States, producing crops such as corn, grain, hay, sugar beets, alfalfa, tomatoes, asparagus, and safflower.
The Delta has ports, deepwater ship channels, major highways, railroad corridors, natural gas and energy lines, and flood infrastructure. Serving as the hub of California’s water supply system, the Delta provides drinking water to 30 million Californians and irrigates 7,000 square miles of farmland. As the largest estuary on the west coast of North and South America, the Delta is vital for two-thirds of California’s salmon population and numerous migratory waterfowl.
However, the Delta faces ongoing conflicts due to the need to protect endangered or threatened species that inhabit the area. Add to that the uncertainties of climate change, and the situation is indeed very complicated.
At the Association of California Water Agencies (ACWA) spring conference, three leaders from different parts of the state talked about how climate change impacts the Delta’s water supplies, flood control, and farming.
On the panel:
- Sacramento County Supervisor Pat Hume: He was elected to the Sacramento County Board of Supervisors in 2022 to represent District 5, which includes the city of Elk Grove, Galt, Isleton, and Rancho Cordova, as well as rural farming area communities in the southern portion of the Sacramento County and the Delta. As the District 5 Supervisor, he serves on numerous boards and commissions, including the Delta Protection Commission, the Freeport Regional Water Authority, and the Sacramento San Joaquin Delta Conservancy.
- Adan Ortega, Chair of the Board of Directors, Metropolitan Water District: He leads a 38-member board of directors representing 26 member agencies across Los Angeles, Orange County, Riverside, San Bernardino, San Diego, and Ventura Counties. As Chair, he works collaboratively with the board to respond to climate change challenges and ensure a reliable, high-quality drinking water supply for Southern Californians.
- Randy Fiorini, farmer and former member of the Delta Stewardship Council: He was raised on his family’s tree fruit and wine grape farm in Turlock, and after graduation from Cal Poly San Luis Obispo, he returned to Turlock and assumed Managing Partner responsibilities for the Fiorini ranch. His involvement with water issues began in 1992 when he was elected director of the Turlock Irrigation District. He has also served as president of the California Farm Water Coalition, president of the Association of California Water Agencies, and as a council member and Chair of the Delta Stewardship Council.
The panel was moderated by Jennifer Pierre, General Manager of the State Water Contractors.
The panelists began by introducing themselves and their interest in the Delta.
Supervisor Pat Hume grew up in Elk Grove and has spent time fishing and exploring the Delta. The Delta is a very special place for wildlife and recreation, as well as for farmers. “There are a lot of stressors on the Delta. As we talk about moving forward, my contention is that keeping flows in the Delta for as long as possible works to the overall benefit of the fisheries, migratory waterfowl, and our farmers.”
Chair Adan Ortega’s history goes back 30 years to when he worked for Secretary of State Bill Jones on the Cal Fed process, where there was an effort to get the federal government to contribute towards the ‘through-Delta solution.’ “It’s interesting that history repeats itself. As we go through the tension of the debate on Delta conveyance, some of those things that we were talking about 30 years ago all of a sudden are relevant again in terms of the measures that could be done to restore the Delta to the degree that you can restore it and provide sustainable water supplies.”
Chair Ortega noted that different parts of the state depend on the Delta for different things. “Few appreciate that one of our biggest challenges in Southern California is managing salinity. And the Delta is a key component of that strategy. How we manage salinity is essential, as it could be very corrosive to our infrastructure and end up fouling our groundwater basins if we don’t have a balance that we can manage.”
Randy Fiorini’s career began as a farmer on his family’s farm, which was best known for producing high-quality peaches. He became Chair of the California Cling Peach advisory board and worked with Delta pear growers to determine the funding split for a fruit cocktail promotion. “Everything is difficult. We argued the percentage of pears and the percentage of peaches in the cans to determine who’s going to pay what. It’s through processes like that the Delta farmers and I became friends.”
That led Governor Schwarzenegger to appoint him to the Delta Stewardship Council to represent agriculture. “I’ve been intimately involved in agriculture all my life. I continue to farm; it is my primary occupation. Now, my son and youngest daughter are running the day to day operations. When I moved to Sacramento to serve full-time as the Chair of the Delta Stewardship Council, I had to rely on my kids to manage it. They did such a great job that when I came back, I didn’t change a thing. So now I serve in an advisory role; they advise me what I should do to help them.”
Climate change and uncertainty
Moderator Jennifer Pierre asked how climate impacts your relationship to the Delta. What are you observing?
Chair Ortega said that lack of certainty is the factor that drives people together. “With climate change, the only certainty we have is uncertainty, and how we manage that uncertainty depends on the other parties that depend on the Delta. Metropolitan has experienced uncertainty regarding deliveries from the Delta. This year, we’re supposed to be having a good year in terms of deliveries, but we’re not. That then drives the certainty of funding that we have available to invest in some of the things that need to be done to maintain the Delta in a way that operates not only for us but also for the local communities that live there.”
Metropolitan is currently working through a climate adaptation master planning process, as climate change is not something that might happen but something that is happening. “Therefore, we have to become very strategic about where we place our investments. Engaging the parties in the Delta is key for us because it will inform our next 100 years of investments. Having an honest conversation about what’s possible to do based on what we can agree on and move forward with is a key strategic factor when envisioning what we can do with our overall water supply portfolio.”
He pointed out that Southern California has become much more water efficient, reducing water use by 40% over 30 years. With the good hydrology over the last two years, Metropolitan has refilled its reserves, replenished its groundwater basins, and filled its reservoirs. “The question is, where do we put what we have available? We need more storage below the Delta. Those are all factors that we need to determine how we will afford to fund things in the years going forward.”
Supervisor Hume agreed that climate change is about uncertainty. One of his concerns is the impacts of extreme weather on the Delta. “Those extreme flows are going through the through-Delta conveyance, which is important for the water exporters taking the water from the southern end of the Delta. So it’s important then that we look at strengthening the 70 plus billion dollars of infrastructure that we’ve invested in over the years through the Central Valley Project and the State Water Project, so that that water supply is resilient, adaptable, and sustainable. So, the Delta Counties Coalition and Metropolitan Water District wrote a joint letter to support the funding of the levee subvention program to reinvest in those levees. I think that’s the first time we’ve ever put pen to paper in a unified front to say this is important to both of us.”
“So, as we start talking about collaboration, let’s start with those things that we can agree upon and work outward from there,” continued Supervisor Hume. “Affordable, reliable, and sustainable water going down to our farmers, friends, businesses, and residents to the south of us is important. But so is the importance of the Delta as a place – it’s one of only 13 national heritage areas in the United States.”
Another uncertainty is the rise in sea level, which has been estimated to be anywhere from one foot to six and a half feet by 2100. “But the only certain existential threat to the Delta is taking an extreme amount of freshwater from higher up in the system, which we see exacerbating that salinity intrusion,” he said.
Randy Fiorini agreed that climate change is real, but the impacts are debatable. “There’s no question that we’re seeing higher highs and lower lows in snowpack and rainfall. If you look at the last 50 years and compare it to the previous 50 years: higher highs, lower lows, longer drought periods – it’s real, and it’s something we have to deal with. For a long time, there’s been a recommendation to add more storage to capture those higher highs, protect downstream interests from flooding, and provide more water in the dry years.”
Adapting to climate change
Moderator Jennifer Pierre noted that the panelists all agree that climate change is happening and that the lack of certainty is a problem. So, what are you doing for adaptation?
Chair Ortega pointed out that the Delta is a crudely altered landscape where the environment really hasn’t had a chance. The Cal Fed process talked about restoration, but the aim was to stabilize the Delta so that the environment could finally have a chance to thrive in conditions that we’re going to alter a little more, regardless of the solution. “So stabilizing the Delta, instead of restoring it to something nobody quite has their finger on, could be a key to finding consensus on projects we could mutually support.”
“Our adaptation strategy has to be one where we can’t stand still – we have to do something,” Chair Ortega continued. “We may have to do things like we’ve done in the Imperial Valley and the Palo Verde Valley, where we’re investing in farm conservation to fill our aqueduct. In 2003, we lost half of our Colorado River water, and yet we run a full aqueduct. Well, how do we do it? We’ve invested and partnered, and I think our adaptation strategy has to lean in that direction because we may not be able to make the progress we should be making in the Delta itself.”
Moderator Jennifer Pierre noted that Governor Newsom had appeared at the conference and was ‘unequivocal’ about his support for the Delta Conveyance Project as a climate adaptation strategy. “He said things like ‘we can only be as dumb as we want to be in not building it’ and that he would do everything in his power to get the permits done. He really doubled down on that being a climate project. What are your feelings about the Governor’s statements yesterday?”
Chair Ortega acknowledged he wasn’t present when the Governor made those comments, but it isn’t the first time the Governor has taken a stand for Delta conveyance. “Last year, he proposed a nine-month limit on CEQA challenges to large projects, including Delta conveyance. We can blame the Delta parties for the fact that the exemption didn’t apply to Delta conveyance, but if you go back and look at the hearing when the legislature was considering it, only one person from the water industry turned up to testify in favor of it, and she’s sitting right next to me. So we in the water industry, if we’re going to be asking the Governor to step up, we have to show up. So, I have to question the resolve of the water industry itself.”
“I think there is a need to consult the parties in the Delta about creating certainty about the fate of Delta conveyance,” continued Chair Ortega. “I’ve heard Secretary Crowfoot say on several occasions that if we could have a timely resolution, thumbs up or down, it could help spur investments that we need to make. So, is there a way to engage the Delta counties and others … to figure out a way to expedite the resolution of the nine lawsuits that have been filed against Delta conveyance so that there could be a timely resolution and we can move forward in planning to do what we must do, either in the Delta, or under the Delta, or by whatever adaptation measures we might have to consider because we’re running up against the clock.”
Supervisor Hume agreed with Chair Ortega’s remarks concerning working on storage, groundwater recharge, and off-channel diversions to capture some high water flows from higher up in the watershed. “To the extent that we can take those extreme highs and lessen that wavelength so that it’s not so extreme and we keep water in the system, to me, that is the ultimate way that we’re going to ‘solve for x’ relative to the extremes of climate change.”
Supervisor Hume also agreed with the Governor’s comments, but not how folks might think. “I think the Delta conveyance project absolutely is a climate project. There is no other singular project that will hasten the negative effects of climate change than the Delta Conveyance Project. That’s how I look at it, and here’s why. The flow of water that would be taken off the Sacramento River with a new point of diversion at 6000 cubic feet per second is roughly the amount of water flowing in the American River right now from Folsom Dam to the confluence. It’s a massive amount of water. So if you’re looking at salinity intrusion, you’re looking at the sea level change, you’re looking at all of the farmers and communities that rely upon that for recreation and landscape irrigation, it’s important that the water be there.”
“I think Metropolitan right now is dancing on a razor’s edge because they know they’ve written some big checks, and there are still big checks to come,” Supervisor Hume continued. “And yet, they’re still looking at about two decades probably of uncertainty before that ever is put to use. So I don’t think that’s a tenable situation just to be bleeding out revenue and money expenses and not have that certainty of the water delivery. The Delta Conveyance Project is last-century thinking, and we think there’s a way to use our money more prudently toward next-century projects.”
Supervisor Hume acknowledged the work Metropolitan is doing on the Pure Water recycled water project and conservation and noted that desalination is significantly more expensive than imported water from the Delta. “We recognize that there has to be give and take. And so that’s where the spirit of collaboration comes in. It’s ‘I understand your needs; now let’s figure out how we get there in a way that doesn’t put so much of the burden on my constituents.’”
Randy Fiorini pointed out that the Delta Stewardship Council was created to coordinate the 200+ state, federal, and local agencies with some level of responsibility for operations in the Delta. “I served on the Council for 11 years. In the first three, we developed a legally enforceable management plan to improve conditions and prevent further harm in the Delta. There are 53 recommendations – more now, and 12 regulatory policies that were to guide all 200 of those state agencies toward a common goal of improvement and protection. So my answer is the Delta Plan: it’s viable, informative, and parts of it have been implemented with many more to go.”
“In 11 years in the Delta, this is what I learned. The Delta is complicated. It’s difficult to get things done; it’s difficult to achieve success. And there are so many areas of resistance—land subsidence reversal. We know over time that farming practices have lowered the level of the bowls we call islands as much as 20 or 25 feet below the level of water, so the flood risk has increased significantly over time. … Growers are concerned about the health of the soil, in particular, as it relates to flood protection in the Delta. There is a desire to change practices and to change crops.”
“But every farmer in the Delta is not there to have fun; they’re there to make money,” continued Mr. Fiorini. “Some alternatives to improve conditions, such as growing tules, unless it’s subsidized, it’s going to be hard to get a transition. Rice seems to provide many good opportunities, but the varieties available to grow in the Delta are not necessarily the varieties that the consumer demands. So you have a marketing issue and a profitability issue, but you have a willingness from growers in the Delta to help improve conditions.”
Moving at the speed of trust
Chair Ortega noted that one of the directors from Westland said, ‘Progress comes at the speed of trust.’ “I think what’s lacking and creates the delay and the complicated nature of dealing with the Delta is the inherent distrust amongst the parties. These attitudes were created in a bygone era that has dramatically shifted before our eyes. And the question is, can we establish a measure of trust going forward as we perhaps look at things a little differently?”
“For example, the term restoration is a bygone era term. If we were to take a different look at it and talk about stabilization, many of these projects would aim to create stable conditions so that fish can thrive and agriculture can prosper. Can we build trust on that foundation? For us, it’s important because 85% of all our flows with or without Delta conveyance would have to go through the Delta, regardless of what happens. And it’s important to us to lay the foundation. Our investments are going to be limited by the uncertainty surrounding Delta conveyance. And that would have an inverse effect on the Delta itself, as partners are needed to deal with many other things that are important to the Delta communities.”
So one of our challenges is, at what rate of speed can we develop trust so that we can make progress and resolve the questions? This depends on what you believe are the solutions of a bygone era or the solutions of the future. Ultimately, the courts will have a say, and we must allow that process to occur to have that certainty in moving forward. Otherwise, we will be here 30 years from now, having the same discussion.”
“But even more dangerously, perhaps not. Perhaps we get into a moment of danger in the Delta that alters the equation even more. And I don’t think any of us who depend on the Delta want that.”
Supervisor Hume noted that Chair Ortega has said, ‘The only true doomsday scenario is doing nothing.’
Randy Fiorini noted that 20 years ago, ACWA created a document called ‘The Blueprint for California Water, No Time to Waste,’ which recommended that Governor Schwarzenegger appoint a Blue Ribbon Task Force to sort out Delta conveyance. The Blue Ribbon Task Force reported two important items that were later embraced in the Delta Plan.
“One is a dual conveyance. We already have a method of moving water through the Delta to the export pumps, utilizing the levees constructed to reclaim the Delta for agricultural purposes. The second method is an alternative peripheral or tunnel option to move water at certain times of the year when moving water through the Delta might endanger fish species. So, they recommended dual conveyance.
“They also recommended the coequal goals of improving water supply reliability for the state and improving conditions in the Delta … but after spending time in Sacramento, I realized it’s such an impossible process to come to a consensus.”
So Mr. Fiorini brought together seven growers in the Delta and seven in the San Joaquin Valley, knowing that many of their issues are common. The group has met several times and is beginning to coalesce around some initiatives that are mutually beneficial.
“If you’ve got two groups that are historically not on the same page, and they come with the same page, now you’ve lessened the threat of controversy, and that is more likely to gain some legislative support and maybe a chance to get more support from the administration,” said Mr. Fiorini.
“This is not an alternative to the Delta conveyance project. The view among everybody is that we already have a method of conveyance, so why don’t we improve that while we wait 20 years to determine what the outcome of the Delta conveyance project is? So, it’s additive, not an alternative. I’m really excited. Because there’s movement, there’s relationship building, and trust has formed that will lead to something good.”
Reasons for optimism
To close the panel, Moderator Jennifer Pierre noted that if you work in water, you can’t do it unless you’re eternally optimistic. So, what makes you optimistic about the Delta?
Randy Fiorini: “My experiences and working with people developing trust from region to region, from Metropolitan to North Delta. It’s going to happen with people, not with state agencies. The folks involved in trying to find solutions for the Delta will have to create their own and then get agency approval.”
Supervisor Hume: “I’m an optimist by nature. Some of my favorite days on this job are when I get to go down and spend time in the Delta; it’s just a beautiful place. We need a different way of thinking, not can we, but how do we, because we have to figure out how to pull off that surface water in the wet years to bank so we can rely upon it in a dry year. … There are all sorts of things that I think we can get the folks down in the Delta to agree upon. They just see this current proposal as being a refreshed and polished-up version of past things that have been turned down.”
Adan Ortega: “I’m not so much an optimist as a pragmatist. And I believe that necessity is going to drive us towards a solution. It may be a solution that we’ve imagined already, or it may be one that might surprise us, because I think time is marching forward and things can happen. It’s going to shape what we ultimately do, but we’re going to have to do something.”
