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both the new depletions under Blocks 7 & 8 and about 300,000 acre feet almost every year to mimic natural flow patterns during the spring run-off, flows in the mainstem during the fall and early spring would have dropped from 300 to 185 cfs, and there was no flexibility left in the operation of Navajo Reservoir to offset even half of the Block 7 & 8 depletions. The reasonable and prudent alternative was to reduce the allowable depletions for two existing Navajo Nation projects already in the ALP baseline, to allocate the savings of 16,420 acre feet to Blocks 7 & 8, and to limit the total depletions of the NIIP to about 150,000 acre feet and not increase the overall baseline depletions until at least the seven year research period for the San Juan Program was completed. The U.S. Bureau of Indian Affairs also agreed to help fund that research and to assist in the protection of the water released from Navajo Reservoir for the listed fishes and several measures were included in the alternative for monitoring and controlling the selenium loading by the NIIP. Program Goals, Elements, Organization, and Funding The "San Juan River Basin Recovery Implementation Program" was adopted on schedule by the signing of cooperative agreement about a year the MOU was signed. The cooperative agreement was effective in November 1992 and will remain in force for 15 years. Like the Upper Basin Program had assumed for the razorback, which was unlisted at the time that program was adopted, the San Juan Program assumes that its implementation will benefit seven other native fish species and avoid their listing. Also like the Upper Basin Program, it has two basic goals: to help recover the Colorado squawfish and razorback sucker, and to allow water development to proceed in compliance with the ESA. The water development goal for the San Juan subbasin is amplified by the federal trust responsibilities to the four affected tribes. The fish recovery goal for the San Juan Program was expressed in terms of implementing the existing recovery plan for the squawfish and the recovery plan for the razorback once it was approved by the FWS. The existing recovery goal for the squawfish was summarized as "establishing and protecting self-sustaining populations in their natural habitat throughout their current range", legally protecting that habitat, and removing the threat of significant fragmentation. The San Juan Program postulates that the goals of the razorback recovery plan will include the genetic banking of presumptive stocks, the maintenance of wild populations in their natural habitat, and some, augmentation of existing populations. Specific goals for the San Juan populations are to be established by the respective recovery teams and approved by the FWS to reflect the contribution of these populations to range- wide recovery. The coordination of the San Juan Program with recovery planning and implementation elsewhere in the Colorado River Basin is left without elaboration to the FWS. The main elements of the San Juan Program are similar to the Upper Basin Program and are presented as a problem statement and course of action for 1) developing subbasin specific recovery goals and a long range action plan, 2) for genetic banking and augmentation of the basin's existing squawfish and razorback populations, 3) for restoring, managing, and protecting flow dependent and other habitat, 4) for protecting and enhancing water quality, 5) for controlling the stocking of non-native fishes, and 6) for biological monitoring and data management. The water quality element is an important difference from the Upper Basin Program; contaminants,and other water quality limits on the recovery of the listed fishes elsewhere in the Upper Basin are addressed outside of that program. Participation in the San Juan Program is organized around its Coordination, Biology, and Navajo Reservoir operating committees. Membership on the Coordinating Committee, which can make decisions by a two-thirds majority, was 16