"We need to look at a market-based system," Frankel says. "As the price of water increases, naturally what happens is that demand goes down."

And with the right pricing system, Utahns would conserve far more than the 25 percent stated in state conservation goals, and it just might eliminate the need for costly developments like pipeline projects.

Frankel isn't the only voice calling for radical revisions in state water policy. Some lawmakers have joined the chorus, calling it unfair that water rates are kept artificially low through general property and sales taxes paid by all.

And Gov. Mike Leavitt called for changes in how water projects are funded, pushing efforts to remove tax subsidies for water development, thereby encouraging more conservation as the true price of water is reflected in water rates. Leavitt has since backed off of water-funding reforms in the face of legislative opposition, mostly from rural interests.

The Utah Foundation, a nonprofit, nonpartisan think tank, released a report last year showing Utahns pay far less for water than other Western cities — often less than half.

Based on the Utah Foundation study, Salt Lake City residents had the third cheapest water rates in the West, about $1.04 per 1,000 gallons of water. Provo residents paid only 75 cents, or tied with Sacramento for last among the 13 cities considered.

By comparison, folks in Reno pay $3.39 per 1,000 gallons. And even in rain-soaked Seattle, people pay $2.30 per 1,000 gallons (see chart).

Frankel does not believe taking water away from agriculture is the answer. At least farmers are producing a product of value, he said.

And in addition to food and fiber, farms also contribute to improved landscapes and wildlife habitat, Brown adds.

"But we're just wasting it," Frankel said of urban areas. "And now we are trying to provide water for future Utahns at the cheapest possible price" by subsidizing water development with property and sales taxes.

It is unlikely lawmakers will end those tax subsidies. In fact, a legislative tax force looking at how to fund water projects is looking at ways to increase the subsidies, recommending a sales-tax hike to pay for water projects. Currently, 1/16th of a percent of sales taxes goes into a water development fund, or about $17 million a year.

"I know it's a sensitive issue, but if we're really serious about this, we need a long-term solution to the $5 billion problem," said Sen. Tom Hatch, R-Panguitch, and co-chairman of the State Water Development Commission.

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Have a comment about Utah's water future? Join the discussion Monday on the Doug Wright Show, which begins at 9 a.m.

E-mail: spang@desnews.com; donna@desnews.com