THE TRADITIONAL SETTING ATTITUDES TOWARD WATERUnlike most resources in the West, water has often been considered to have a unique, overriding value. As a result, its protection, development, management, and use were not subject to ordinary calculations of costs and benefits (Hirschleifer, DeHaven, and Milliman, 1969). It had an almost religious quality about it, particularly in its association with irrigation agriculture. &dquo;To make the desert blossom as the rose&dquo; was a superior form of human endeavor that deserved and often received homage from federal-less often state-decision makers in the form of vast outlays of federal funds (Kelso, 1967: 177). This &dquo;water is different&dquo; syndrome had many specific characteristics. Proposals for water development were expressed in terms of &dquo;need&dquo; or &dquo;requirements&dquo; rather than economic demands. For example, water should not be priced at its true