Glen Canyon Dam Adaptive Management Program Administrative History

This brief article, written for a symposium on "Collaboration and the Colorado River," evaluates the U.S. Department of the Interior's Glen Canyon Dam Adaptive Management Program ("AMP"). The AMP has been advanced as a pioneering collaborative and adaptive approach for both decreasing scientific uncertainty in support of regulatory decision-making and helping manage contentious resource disputes -- in this case, the increasingly thorny conflict over the Colorado River's finite natural resources. Though encouraging in some respects, the AMP serves as a valuable illustration of the flaws of existing regulatory processes purporting to incorporate collaboration and regulatory adaptation into the decision-making process. Born in the shadow of the law and improvised with too little thought as to its structure, the AMP demonstrates the need to attend to the design of the regulatory process and integrate mechanisms that compel systematic program evaluation and adaptation. As such, the AMP provides vital information on how future collaborative experiments might be modified to enhance their prospects of success.

The Glen Canyon Dam Adaptive Management Program (AMP) has been identified as a model for natural resource management. We challenge that assertion, citing the lack of progress toward a long-term management plan for the dam, sustained extra-programmatic conflict, and a downriver ecology that is still in jeopardy, despite over ten years of meetings and an expensive research program. We have examined the primary and secondary sources available on the AMP’s design and operation in light of best practices identified in the literature on adaptive management and collaborative decision-making. We have identified six shortcomings: (1) an inadequate approach to identifying stakeholders; (2) a failure to provide clear goals and involve stakeholders in establishing the operating procedures that guide the collaborative process; (3) inappropriate use of professional neutrals and a failure to cultivate consensus; (4) a failure to establish and follow clear joint fact-finding procedures; (5) a failure to produce functional written agreements; and (6) a failure to manage the AMP adaptively and cultivate long-term problem-solving capacity.

Adaptive management can be an effective approach for addressing complex ecosystem-related processes like the operation of the Glen Canyon Dam, particularly in the face of substantial complexity, uncertainty, and political contentiousness. However, the Glen Canyon Dam AMP shows that a stated commitment to collaboration and adaptive management is insufficient. Effective management of natural resources can only be realized through careful attention to the collaborative design and implementation of appropriate problem-solving and adaptive-management procedures. It also requires the development of an appropriate organizational infrastructure that promotes stakeholder dialogue and agency learning. Though the experimental Glen Canyon Dam AMP is far from a success of collaborative adaptive management, the lessons from its shortcomings can foster more effective collaborative adaptive management in the future by Congress, federal agencies, and local and state authorities.

An ecological survey of the riparian zone of the Colorado River from Lees Ferry to the Grand Wash Cliffs, Arizona, was initiated between 1 June 1974 and 30 June 1976. The purposes of this study were:

First, to describe vegetational changes as a result of the controlled water release from Glen Canyon Dam, second, preparation of a vegetation map from river level up to the 500 foot contour level, third, to describe population densities, home ranges, and demography of important vertebrates, fourth, to inventory insects of the riparian zone, fifth, to describe the distribution and impact caused by feral burros, and sixth, to describe the interrelationships of humans with the biota.

The major findings include the following: (1)The construction of Glen Canyon Dam has permitted the development of a new riparian community. This community is characterized by salt cedar, arrowweed, coyote willow, desert broom, and seep willow. (2) Botanical investigations in the riparian and adjacent habitats discerned the presence of 807 species of vascular plants representing 92 families. Also, two species, previously undescribed, Flaveria mcdougallii and Euphorbia rossii, are presented. (3) An accessment of important vertebrates and insects revealed: a) rodent communities on beaches tend to be less productive and less stable than those rodent communities of the terrace areas, b) Peromyscus eremicus appears to be the most successful small mammal in the riparian zone, c) rodent survivorship is very low and suggests a nearly annual population turnover, d) 178 species of birds utilize the riparian zone, of these 41 breed there, e) the most common bird species is the Lucy's Warbler, f) over 12,000 insect specimens in 20 orders and 247 families were collected and prepared, g) insect production on the exotic salt cedar fluctuate dramatically in comparison to insect production on dominant native plants. (4) Feral ass distribution was found to be greater than previously believed. It has been determined that the expanding feral ass populations are systematically destroying riparian and desert habitats within the study area and their immediate removal is suggested. (5) Human impact seems to be a function of visitor activities and the specific biotic sensitivity of the use area rather than a function of the total number of users. (6) In 1974, 395 different campsites were reported between Lees Ferry and Pierce's Ferry. In 1975, 350 different campsites were used. (7) Establishment and maintenance of an inner canyon trail system, the removal of all future human fecal waste material and education of river users may be the means to minimize habitat destruction rather than just setting a user-day limit.