History Of State Ownership, Resource Development, And Management Of Great Salt Lake

Utah statute defines sovereign lands as "those lands lying below the ordinary high water mark of navigable bodies of water at the date of statehood, and owned by the state by virtue of its sovereignty." The lands within the bed of Great Salt Lake (GSL) are, by this definition, sovereign lands, acquired at statehood in 1896 in accordance with the "equal footing" doctrine, granting each state control and ownership of navigable waters and the lands underneath those waters within its borders. Under public trust doctrine, the state, as trustee for the people, bears responsibility for preserving and protecting the right of the public to use of the waters for navigation, commerce, fishing, recreation, and wildlife habitat. Also by statute, sovereign lands are defined as "state lands," to be managed by "multiple use sustained-yield principles." The Division of Forestry, Fire and State Lands is given management authority for sovereign lands and, as manager, has responsibility to prepare comprehensive plans, initiate studies of the lake and its resources, implement comprehensive plans through state and local entities, and coordinate the activities of various divisions within the Department of Natural Resources (DNR). The Division of Forestry, Fire and State Lands also has responsibility for management of mineral leasing on sovereign lands. The many resources on the lake--water, minerals, wildlife, recreation, archeological and historical values--are managed by as many state agencies which occasionally creates conflicts. The brines of GSL contain several ions that crystalize into valuable minerals during evaporation. The major ions in the lake are, in order of relative abundance, chloride, sodium, sulfate, magnesium, and potassium. Mineral products which are currently extracted from lake brines are sodium chloride, magnesium chloride brine which can be sold as flake magnesium chloride or further processed into magnesium and chlorine gas, and potassium sulfate. Mineral products which have potential for extraction include gypsum, sodium sulfate, and trace amounts of lithium, boron, and bromine. The GSL contained an estimated 4.3 billion short tons (st) (3.9 billion metric tons [mt]) of dissolved salts in 1998. Utah Geological Survey (UGS) estimates of the dissolved salt content in GSL have fluctuated from 4.0 to 5.5 billion st (3.6 to 5.0 billion mt) due to the dynamic conditions in the lake as salts are precipitated and redissolved, and due to the diversion of brines from GSL, such as the West Desert Pumping Project. The lake has four areas of varying salinity, separated by dikes or other man-made structures: north arm and Stansbury Bay brines at near saturation (25 to 27 percent total dissolved solids [TDS]); the main body of the south arm with concentrations ranging from 7 to 15 percent TDS as lake elevations fluctuate; the waters in Farmington Bay at approximately 3 to 5 percent TDS; and Bear River Bay at <1 to 7 percent TDS. The percent TDS in Bear River Bay fluctuates with lake level, and changes in Bear River inflow. The transfer of salts from the south arm to the north arm has raised questions about the viability of the mineral and brine shrimp industries. The UGS and the U.S. Geological Survey (USGS) continue to monitor salinities at designated sites on the lake to document changing lake salinity. A recurrent theme is that placement of dikes and diversions can have significant and rapid impacts on various conditions in the lake. Hydrocarbon resources on the lake are significant, but presently undeveloped. The hydrocarbons are low gravity (4 to 9 degree API) and tar-like, contain high nitrogen concentrations, and up to 12 percent sulfur. The unusual characteristics of the oil have been the subject of studies by chemists at Weber State University and University Louis Pasteur de Strasbourg. However, these resources are difficult, and at present, uneconomic to extract using current technology because of the nature of the hydrocarbons, and production in "an offshore, highly saline environment." Oolitic sand deposits make up many of the beaches and shorelines around the lake. Because of their high calcium carbonate content, oolites have been used by Magnesium Corporation of America (MagCorp) and its predecessors for acid neutralization and dike construction. Oolites are also used in very minor amounts in flower drying. The Utah Division of Oil, Gas and Mining reports up to 130,000 st (118,000 mt) mined annually by MagCorp from U.S. Bureau of Land Management (BLM) lands adjacent to GSL. Currently, there are twelve producing mineral leases which generated slightly more than $1,000,000 in royalties during calendar year 1998. IMC Kalium Ogden Corp. (IMC Kalium) produces potassium sulfate and magnesium chloride from brines concentrated through solar evaporation in Bear River Bay and Clyman Bay. By-product sodium chloride is transferred to IMC Salt, which packages and sells the salt. MagCorp produces magnesium metal from brines concentrated in Stansbury Bay. Cargill Salt produces sodium chloride from brines provided by MagCorp under a lease agreement. Morton Salt produces salt at the southeast end of Stansbury Island. Lastly, North Shore Limited produces cocentrated brines for use in dietary and mineral/vitamin supplements near Spring Bay in the north arm of the lake. Producers of magnesium, potash, and salt from GSL contribute significantly to the value of metals and industrial minerals in Utah. Together these companies contribute approximately $240 million in gross value, or 18 percent of the value of the state&apos;s nonfuel mineral production. Most of this production is exported.