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conclusion was made easier by the fact that the technical issues were straightforward and the environmental effects seemed minor. The unsuccessful negotiations in our study can be characterized as follows: In two, the technical issues--and to some extent the consultation process--were clear but value considerations intervened. In the other two, the technical issues were never clear, the process was fuzzy, and value considerations were not resolved. Of the minimally successful consultations Oswegatchie and Cataract provide examples of clear technical facts but conflicts over goals. In Oswegatchie flows in one bypass reach were the key to the conflict. The parties differed on the effects of these flows, with the utility believing that releasing the flows significantly reduced the profitability of the project while the agencies believed that their recommended flows in the bypassed reach were essential for fisheries and recreation. Moreover, each party believed that the FERC process favored their position and that if the decision were left to the FERC, their own positions would be upheld. Table 3: Summary of Findings for Technical Clarity and Negotiation Success Koma Kulshan Eastman Falls Ashton St. Anthony Pit 3,4,5 Oswegatchie Cataract Fully Fully Minimally Minimally Minimally Minimally Successful Successful Successful Successful Successful Successful Technical High Lack of Lack of Partial Partial Clarity Technical Technical Technical Technical Technical Clarity Clarity Clarity Clarity Clarity In Cataract the issues were a comprehensive plan for fish passage on the entire river, fish passage at the Cataract -site, and bypass flows. Resolution of this dispute hinged on developing a common objective for all projects on the river. Because it was the most downstream project some parties wanted to use the Cataract licensing process to leverage an agreement that fish passage facilities would be built on all upstream dams. On the other hand, the utility wanted to decide the fish passage question on a project-by- project basis, arguing that when fish migrated up to