An Analysis of Policy Change on the Rogue River, Oregon
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Central Washington University ScholarWorks@CWU All Master's Theses Master's Theses Winter 2016 The Life Cycle of Dams: An Analysis of Policy Change on the Rogue River, Oregon Wendy McDermott Central Washington University, [email protected] Follow this and additional works at: https://digitalcommons.cwu.edu/etd Part of the Hydrology Commons, and the Natural Resources Management and Policy Commons Recommended Citation McDermott, Wendy, "The Life Cycle of Dams: An Analysis of Policy Change on the Rogue River, Oregon" (2016). All Master's Theses. 359. https://digitalcommons.cwu.edu/etd/359 This Thesis is brought to you for free and open access by the Master's Theses at ScholarWorks@CWU. It has been accepted for inclusion in All Master's Theses by an authorized administrator of ScholarWorks@CWU. For more information, please contact [email protected]. THE LIFE CYCLE OF DAMS: AN ANALYSIS OF POLICY CHANGE ON THE ROGUE RIVER, OREGON __________________________________ A Thesis Presented to The Graduate Faculty Central Washington University ___________________________________ In Partial Fulfillment of the Requirements for the Degree Master of Science Cultural and Environmental Resource Management ___________________________________ by Wendy D. McDermott March 2016 CENTRAL WASHINGTON UNIVERSITY Graduate Studies We hereby approve the thesis of Wendy D. McDermott Candidate for the degree of Master of Science APPROVED FOR THE GRADUATE FACULTY ______________ _________________________________________ Dr. Michael Pease, Committee Chair ______________ _________________________________________ Dr. Jennifer Lipton ______________ _________________________________________ Dr. Craig S. Revels ______________ _________________________________________ Dean of Graduate Studies ii ABSTRACT THE LIFE CYCLE OF DAMS: AN ANALYSIS OF POLICY CHANGE ON THE ROGUE RIVER, OREGON by Wendy D. McDermott March 2016 Every river system contains a unique set of attributes including biophysical characteristics, human created infrastructure, and stakeholder user groups. This thesis utilizes Lowry’s (2003) “Theoretical Framework for Policy Changes” to provide an analysis of fundamental policy change that occurred on the Rogue River in southwest Oregon through a comparative case study of the removal of two dams: Savage Rapids Dam (SRD) and the Gold Ray Dam (GRD). Fundamental change occurs when political receptivity is high and physical complexity is low. Political receptivity characterizes how decisions are made and physical complexity refers to how complicated implementing the decision may be. Application of the framework reveals the role of advocacy coalitions and socioeconomic conditions as critical factors in altering the status quo in both of the decision-making process for Savage Rapids Dam and Gold Ray Dam. With the convergence of several economic, social, and environmental factors, dam removal has emerged as a feasible river management option in not only Oregon but also across the United States. iii ACKNOWLEDGMENTS Attaining a master’s degree has been a dream of mine for a very long time, and the completion of this thesis is the final step in achieving that dream; A dream that would not have come true without the encouragement and guidance of family, friends, and mentors. I sincerely thank my committee, Dr. Michael Pease, Dr. Craig Revels, and Dr. Jennifer Lipton, for their guidance and patience during my five-year detour in life between completing my coursework at CWU and finishing this thesis. I thank Dr. Morris Uebelacker for pointing me toward the Rogue River. I am grateful for the assistantship and research fellowships I received from CWU which enabled me to attend graduate school and conduct my research. A thank you goes to Kathy Mechling and Jim Gurley who provided me with housing during summer 2010 while I was in the Rogue River basin conducting research. Lastly, without the loving support and encouragement from my family, especially my parents, John and Gail McDermott, I do not think I would have ever finished writing this thesis. iv TABLE OF CONTENTS Chapter Page I INTRODUCTION ........................................................................................ 1 Purpose and Significance of the Study .................................................... 2 The Rogue River Basin ........................................................................... 3 Savage Rapids Dam and Gold Ray Dam ................................................ 6 Chapter Progression .............................................................................. 11 II LITERATURE REVIEW ........................................................................... 12 Rivers as Workhorses ............................................................................ 12 Consequences of Dams and Regulated Rivers ...................................... 18 Managing Federal Agencies .................................................................. 22 Oregon Agencies ................................................................................... 25 The Emergence of Dam Removal ......................................................... 27 Dam Removal Decision-Making ........................................................... 30 Socioeconomics of Dam Removal ........................................................ 31 Ecological Responses to Dam Removals .............................................. 33 The Policy Process ................................................................................ 34 Policy Change Theory in River Management: Dam Politics ................ 38 Political Receptivity and Physical Complexity ..................................... 39 Summary ............................................................................................... 45 III METHODS ................................................................................................. 46 Introduction ........................................................................................... 46 Methodological Approach ..................................................................... 46 Data Collection and Analysis ................................................................ 47 IV HISTORY OF DAM BUILDING ON THE ROGUE RIVER ................... 54 Introduction ........................................................................................... 54 Native Americans .................................................................................. 54 Historic-Era ........................................................................................... 56 Salmon and Settlement .......................................................................... 58 The Five Main Dams on the Rogue Mainstem (1890-2010) ................ 60 V ANALYSIS AND DISCUSSION ............................................................ 101 Savage Rapids Dam ............................................................................ 101 Gold Ray Dam..................................................................................... 110 Comparison of Savage Rapids and Gold Ray Dams ........................... 117 v Chapter Conclusion ............................................................................. 119 VI CONCLUSION ......................................................................................... 121 Future Work for Dam Removal Research ........................................... 121 Rogue River Post Dam Removal ........................................................ 123 Theoretical Framework for Policy Change ......................................... 127 Final Thoughts .................................................................................... 128 REFERENCES ......................................................................................... 130 vi LIST OF TABLES Table Page 1 Primary purposes of dams in the United States .......................................... 17 2 Dams by ownership in the United States .................................................... 17 3 Primary purposes of the dams in Oregon .................................................... 18 4 Example documentation utilized ................................................................ 49 5 List of interviewees ..................................................................................... 51 6 Dams once located on the mainstem of the Rogue River. .......................... 55 7 Comparison of estimated costs of alternatives to resolve fish passage issues at Savage Rapids Dam ........................................................ 79 8 Ratings for categories of physical receptivity and complexity for Savage Rapids and Gold Ray Dam cases ............................................ 102 9 Competing advocacy coalitions, Savage Rapids Dam removal (1987-2009) ................................................................................ 104 10 Estimated costs of Savage Rapids Dam removal versus retention ........... 110 11 Competing advocacy coalitions, Gold Ray Dam removal (2008-2010) ... 112 12 Comparison of estimated cost of removing or retaining Gold Ray Dam .......................................................................................... 114 13 List of differences between Savage Rapids and Gold Ray Dams ............. 120 14 Salmon redd counts in Rogue River mainstem in formerly inundated reaches behind SRD and GRD ................................................. 125 vii LIST OF FIGURES Figure Page 1 Map of Rogue River Basin and Subbasins ..................................................