The UK spent a lot of resources conspiring against this project, which ultimately failed, to a large extent because he did not have a solution to the blockade that followed nationalisation of the oil production. Perhaps he also did not expect as many members of the majlis to join the foreign conspiracy as did when the blockade got inconvenient.
It's also not like democratisation followed under the shah, rather the opposite, like the establishment of rather nasty security services and a nuclear program that the later revolutionaries inherited.
Right up until he was about to lose an election, then he suspended counting votes and tried to dissolve the Majlis in alliance with the communist party.
What's problematic is Phoenix agriculture is the focus on extremely water hungry crops like alfalfa and not really the presence of agriculture in general.
This is entirely an artifact of arcane water law in the US. Any rational allocation would make alfalfa untenable there.