Glen Canyon Dam Adaptive Management Program Administrative History

The operation of Glen Canyon Dam on the Colorado River affects several downstream resources and water uses including water supply for consumptive uses in Arizona, California, and Nevada, hydroelectric power production, endangered species of native fish, recreational angling for non-native fish, and recreational boating in the Grand Canyon. Decisions about the magnitude and timing of water releases through the dam involve trade-offs between these resources and uses. The numerous laws affecting dam operations create a hierarchy of legal priorities that should govern these decisions. At the top of the hierarchy are mandatory requirements for water storage and delivery and for conservation of endangered species. Other resources and water uses have lower legal priorities. The Glen Canyon Dam Adaptive Management Program ("AMP") has substituted collaborative decision making among stakeholders for the hierarchy of priorities created by law. The AMP has thereby facilitated non-compliance with the Endangered Species Act by the Bureau of Reclamation, which operates the dam, and has effectively given hydroelectric power production and non-native fisheries higher priorities than they are legally entitled to. Adaptive management is consistent with the laws governing operation of Glen Canyon Dam, but collaborative decision making is not. Nor is collaborative decision making an essential, or even logical, component of adaptive management. As implemented in the case of Glen Canyon Dam, collaborative decision making has actually stifled adaptive management by making agreement among stakeholders a prerequisite to changes in the operation of the dam. This Article proposes a program for adaptive, but not collaborative, management of Glen Canyon Dam that would better conform to the law and would be more amenable to adaptation and experimentation than would the current, stakeholder-centered program.

Sediment supplied to the Colorado River within the Grand Canyon has been sorted into distinct deposits of three grain size ranges. The major rapids are formed by boulder deposits from side-canyon tributaries. As a result of a fourfold reduction in peak discharge when Glen Canyon Dam was closed in 1963, new fan debris may increase the gradient through some of the rapids by a factor of 1.8. Cobbles and gravel, transported only during flood stages, are preferentially deposited in the wider sections of the river as bars and riffles and are, for the most part, inactive during post-dam discharges. Fine-grain (largely sandy) terraces occur throughout the canyon, especially along the banks of the large reverse eddies above and below the rapids. The lower terraces are being reworked into beach-like shores by diurnally-varying, post-dam discharges. A slight net lateral erosion of the terraces has resulted. Prior to construction of the dam, sandy bed deposits underwent scour averaging about 1 m during spring floods, balanced by deposition from tributary sources during the summer. Downstream from rapids, decreased turbulence due to lower discharges has resulted in deposition averaging 2.2 m on the bed within the upper portions of the canyon. Differences in rock types along the river determine overall channel morphology. Rocks of low resistance result in a wide valley, a meandering channel, and abundant cobble bars and sand terraces. Narrow channels with rapids and deep pools are most frequent within the sections of the canyon where Precambrian crystalline rocks dominate.