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134 Swimming Against the Current rcquirements. Biological and hydrological data thus summarized were used as a basis for drafting a recovery program for the endan- gered species. After nearly four years of intense discussions, data analyses, and negotiations, a recovery program was finalized in Septem- ber 1987 (USFWS 1987a). After completion of an environmental assessment of the recovery program (USFWS 1987C), the secretaryof the interior joined the governors of Colorado, Utah, and Wyoming, and the administrator for the Western Area Power Administration (WAPA), in executing a cooperative agreement to formally implement the recovery program. The agreement created the ten-member Upper Colorado River Implementation Com- mittee (UCRIC) to oversee the USFWS recovery efforts (Rose and Hamill 1988). Voting mem- bers included the USFWS, USBR, WAPA, the states of Colorado, Utah, and Wyoming, one representative of environmental organizations (e.g., the Environmental Defense Fund, Audu- bon Society), and private water-development interests in the three states. The UCRCC, includ- ing its biology and hydrology subcommittees, was replaced by three technical committees (biology, water acquisition, and information and education) and a management committee to oversee ongoing activities. The signing of this agreement and implementation of the re- covery program were made possible, in part, by legislation in Colorado that recognizes in- stream flows for fishes as a beneficial use of water. The goal of the recovery program is to recover, delist, and manage the three endan- gered fishes and to free the razorback sucker of a need for protection under the ESA by the year 2002. The recovery program outlines a fifteen-year, $60 million effort consisting of five elements: 1. Provision of in-stream flows. The USFWS will quanrify in-stream flows needed for recov- ery of the four rare fishes in the upper Colo- rado and Green River sub-basins. The UCRIC, in cooperation with state agencies, will iden- tify and recommend alternatives to the secre- tary of the inrerior for implementing USFWS flow recommendarions. It is anticipated that in-stream flow needs of rare fishes in major reaches of the Colorado and Green rivers can be provided through program refinement and protection of releases from federal reservoirs such as Flaming Gorge and Blue Mesa. Spe- cifically, the recovery program provides for the acquisition and appropriation of water rights in relatively unregulated systems such as the Yampa and White rivers, conversion of these rights into in-steam flows for fishes, and adminisrration of these rights for in.,stream flow for fish pursuant ro state water laws. More than half of the recovery program's bud- get was targeted for rhis purpose. In 1988 Congress appropriated $ I million to initiate acquisition of water for in-stream flow. Efforts to date have focused on the Yampa River and a 24-km reach of the Colorado River near Grand junction, Colorado. 2. Habitat dez1elopment and maintenance. The goal of rhis element is ro enhance popula- tions of fishes through habitat development Of managemenr measures such as creation of backwaters and construcrion of jetties, fish ladders, and so on. The effectiveness of these measures has never been demonstrated, and consequently, experimental research and dem- onstration projecrs will be conducted before large-scale implementation is attempted. 3. Native fish stocking. The goal of this re- covery element is to produce a sufficient sup- ply of harchery-reared fish ro support research and recovery efforts, and to preserve the gene- tic diversiry present in wild fish. Considera- tion will be given ro supplementing existing populations where srudies conclude it would help promote self-sustaining populations. 4. Management of non-native species and sport fishing. Some introduced fish species are known to prey on, compete with, or limit re- cruitmenr of endangered fishes. Angling may also increase mortality in rhe Colorado squaw-