1

About

This Update

This publication is intended to help

Northwest citizens understand the

many studies to be released this fall and

winter on recovery of endangered and

threatened fish and other aquatic species

throughout the Columbia River Basin.

It is sponsored by the Federal

Caucus, a group of nine federal agencies

responsible for federal actions in the

Northwest that affect salmon, steelhead,

bull trout, white sturgeon and snails

listed under ESA. The Caucus is

coordinating federal planning with other

regional recovery efforts, including those

of states, Indian tribes, the Northwest

Power Planning Council and the

Columbia River Basin Forum. Further

editions of this Citizen Update will

describe study results and list dates and

places of public meetings.

Public Meetings

The Federal Caucus will host public

meetings January through March 2000.

They will provide citizens throughout the

basin an opportunity to learn more about

the options being considered for recovery, and to make written and oral comments before final decisions are made

(see page 2).

Citizen Update

Salmon & Our Future

I

Threatened and Endangered Species

Twelve species of Columbia River Basin salmon and steelhead are

listed under the Endangered Species Act.

Also listed are

these resident fish

and snails:

Fall 1999 • Issue 1

A Publication of the Federal Caucus, Columbia River Basin Fish Recovery

WASHINGTON

IDAHO

continued on page 3

OREGON

Columbia River

Basin Fish Recovery

t is no secret to Northwesterners that salmon are in serious trouble. There are

now 12 salmon and steelhead species in the Columbia and Snake rivers listed

under the Endangered Species Act (ESA), and more may be forthcoming. Resident fish and other aquatic species are also listed.

 Immediate and regionwide action is needed to reverse the declines of naturally

spawning wild salmon, steelhead and other fish, and improve habitat. Though opinion

is strong among Northwesterners that salmon should be protected, intense debate is

focused on how to solve the problem. At the very center of this debate is the question of

removing four federal dams on the lower Snake River. Other actions under study relate

to improving ways to get migrating fish past the dams, protecting and improving salmon

and other fish habitat in the rivers and many tributaries, and making changes in hatchery and harvest practices. These four factors that affect the life cycle of salmon are referred to as the Four

Hs – habitat, hatchery, harvest and hydropower.

A Federal Caucus of nine agencies is working with

regional tribal and state representatives to lay the

groundwork for a unified and coordinated approach

throughout the Columbia River Basin, to restore ESAlisted species and to achieve a healthier ecosystem.

This fall and winter, the region will move a step closer

to solutions when key scientific and analytical reports

are published. This will set the stage for public meetings and comment periods in Washington, Oregon,

Idaho, Montana and Alaska, January to March 2000,

providing opportunity for public input on many facets of long-term salmon recovery decisions.

Chinook Salmon

Snake River Fall: T

Snake River Spring/Summer: T

Lower Columbia River: T

Upper Columbia River Spring: E

Upper Willamette River: T

Steelhead

Snake River Basin: T

Lower Columbia River: T

Middle Columbia River: T

Upper Columbia River: E

Upper Willamette River: T

Sockeye Salmon

Snake River: E

Chum Salmon

Columbia River: T

Bull Trout:

 Columbia River: T

(throughout the basin)

 White Sturgeon

Kootenai River: E

(approximately 168 miles in the Kootenai River)

Snails

Snake River: E

(five species)

What’s Inside

What You Can Do ..... 2

Decline of Fish ......... 3

Goals for Recovery .. 4

Issues & Options ...... 5

Who Has A Role? ..... 6

Decision Tools.......... 7

Contacts .................... 8

T = threatened

E = endangered

MONTANA
Why Is Salmon

Recovery

Important?

➤ healthy watersheds and

clean water mean ecological integrity of natural systems, important for our

future economic, environmental and social health

➤ salmon have been part of

the Northwest culture and

food source for thousands

of years

➤ healthy salmon runs provide tribal fishing opportunities that recognize

tribal culture and treaty

rights

➤ salmon and fisheries contribute to our economy

and provide jobs

➤ the Endangered Species

Act requires protection of

native wild species

What You

Can Do

“For centuries, the

muscular fish whose

life flashes between

woodland streams and

ocean depths has

embodied the bold

health and vitality of

the Pacific Northwest.”

-Theresa Novak, from “A

Snapshot of Salmon in

Oregon, 1998”

PERSPECTIVES

...a sustainable

economy that works

for salmon, people

and the future

-Tim Stearns, Save

Our Wild Salmon

The time frame for reviewing study results and shaping key recommendations for regional recovery plans will be now through March 2000. Here are

ways to be involved.

To Learn More

Citizen Updates

This Update will give you an overall picture of what is happening.

• A second Update late this fall will provide a summary of the Federal Caucus Four-H Paper

describing fish recovery options for the basin hydropower system, habitat, hatcheries and

harvest practices.

• A third Update will provide more information about specific studies including the Lower

Snake River Juvenile Salmon Migration Feasibility Study, the Biological Assessment of the

Federal Hydropower System in the Columbia River Basin, the Interior Columbia Basin

Ecosystem Management Project and others.

The second and third Updates will provide further information about upcoming public meetings.

Web Site and Requesting Report Drafts

You can learn more about these studies on agency Web sites (see page 8). Or you can go to

www.bpa.gov/federalcaucus to see a list of these Web sites, find other links and see public

meeting dates and places as they are scheduled.

To request copies of reports (available mid-December), call 1-509-358-7415, or write to

the Federal Caucus, address below.

To Participate

Federal Caucus Public Meetings

January to March 2000

These meetings, to be scheduled in

locations throughout the basin, will

provide citizens an opportunity to review

and comment on options in all four areas of

recovery, called the “four Hs”– habitat, hatcheries,

harvest, hydropower. Each meeting will provide a time

for people to:

• talk with study managers, ask questions and learn more

about the issues and options

• view a presentation about recovery options

• give written or oral comments to be recorded and reported

to decision-makers.

Since all key documents will be available by this time, these

meetings will help participants learn about all parts of a multispecies recovery plan and look at how the parts can work together.

Both written and oral comments will be welcomed on the Corps of Engineers Draft Lower

Snake River Juvenile Salmon Migration Feasibility Report and Environmental Impact

Statement (EIS). Also, comments on the Four-H Paper will be reported to the federal agencies that compose the Federal Caucus including the National Marine Fisheries Service and

U.S. Fish and Wildlife Service for consideration in the biological opinions and recovery plans

for listed species. A report on the public meetings will be available to the public, members of

Congress and any interested parties.

Note: Meeting dates and places to be scheduled. Watch for future Citizen Updates for more

information on these public meetings and others related to specific documents, or check the

Web site: www.bpa.gov/federalcaucus

To Make Written Comments

Comments To The Federal Caucus

Written comments can be made to the Federal Caucus regarding any of the options in the

Four Hs: habitat, hatcheries, harvest, hydropower. Comments received now through March

2000 will be included along with comments made at the public meetings described above and

reported to all the member agencies of the Caucus.

By mail: Federal Caucus Comment Record, c/o BPA-PL

707 W. Main St., Suite 500

Spokane WA 99201

By email: federalcaucus@bpa.gov
The Columbia River Basin collects water

from hundreds of mountain streams into

four U.S. rivers–the Snake, the Kootenai, the

Clark Fork-Pend Oreille and the Willamette

Rivers. These feed into the mainstem of the

Columbia River which eventually empties into the

Pacific Ocean. Covering 219,000 square miles in

seven western states–Washington, Oregon,

Idaho, Montana, Wyoming, Nevada and Utah - the

basin also takes in 39,500 square miles in British

Columbia. That’s a total area roughly the size of

Texas.

Decline Of Fish and Habitat

In The Basin

I

t is estimated that before the 19th century

influx of large human populations and

development, between 10 million and 16 million

adult salmon and steelhead returned to the

Anadromous Fish

Salmon and steelhead are anadromous fish.

This means they are born in fresh water, migrate downstream to the ocean where they

mature in saltwater, and then return to their

original freshwater birthplace to spawn.

Depending on the species, these fish may

range thousands of miles during a four- or fiveyear life span, without regard to federal, state,

tribal or international boundaries or management practices. Because the salmon’s habitat is

vast and varied, from high mountain streams to

the ocean, protecting and restoring it is especially complicated and difficult.

Resident Fish

Rivers and reservoirs in the basin are also

home to resident freshwater fish, such as

trout and sturgeon. They do not migrate to the

ocean, but may migrate to some extent through

freshwater territory. Human development has

altered their habitat too. Some floodplains and

streamside habitats important to wildlife were

covered when reservoirs behind dams filled

with water. Development in watersheds has affected water quality of many formerly pristine

tributaries, also home to resident fish.

The Endangered Species Act

Steps In

T he Endangered Species Act (ESA) is a

federal law passed in 1973 to protect species of plants and animals from impacts of human actions. Under the ESA, species can be

listed as endangered – in danger of extinction,

or as threatened – likely to become endangered.

The National Marine Fisheries Service

(NMFS) has authority over marine fish (including anadromous fish) and marine mammals,

while the U.S. Fish and Wildlife Service (FWS),

has authority over all other species.

Any federal agency whose proposed

actions may affect a listed species or its habitat

must assess the potential impacts of those

actions, in a document called a biological

assessment, or BA. The “action agency” must

consult with NMFS and/or FWS, which then

issues its biological opinion, or BO, stating

whether the proposed actions will jeopardize

the continued existence of the species. This

BO may contain “reasonable

and prudent” actions needed

to avoid jeopardy.

ESA listings of Snake River

salmon in 1991-92, and subsequent listings of additional

salmonids (salmon and steelhead) in the Columbia and

Snake Rivers, set in motion the

federal consultation process.

This eventually led to the 1995

BOs from NMFS and FWS, a

1998 supplement to the NMFS

BO, and a pledge of a 1999 decision on how the Federal Columbia River Power System

should be operated and configured to protect fish, with a focus on the future of the four federal dams on

the lower Snake River.

The agencies realized that actions beyond

those in the hydropower system must also be

considered to recover listed salmon and other

species. Those actions include improvements

in habitat, harvest and hatchery management.

To ensure a coordinated approach to analyzing all opportunities for improvement in all

Hs, the Federal Caucus was formed and began

work on a “Four-H Paper.”

continued from page 1

Columbia River each year. Today, about one

million adult salmon return, and 80 percent of

these are salmon reared in hatcheries.

The decline in fish and their habitat in the

Columbia River Basin has coincided with rising

human populations and development in the last

150 years, bringing progress to communities, but

at no small cost to the basin’s natural ecosystem. Harnessing the basin’s rich resource has

brought abundant and cheap electrical power

for homes and businesses; turned

desert areas into productive land

that provides food, jobs and export commodities; created a water highway in the Columbia River

Basin for bringing wheat, barley

and other products downstream

and supplies back upstream to the

inner reaches of Oregon, Washington and Idaho; provided flood control for river communities and irrigation for agricultural land; and

supported recreational opportunities including boating, wind surfing, hiking, camping and fishing.

However, this development

has also caused extensive environmental problems and habitat

degradation throughout the basin, and brought

intense commercial fish harvesting. Some juvenile fish are injured or killed in their passage

through powerhouse turbines at dams. Hatchery fish releases have expanded. Watershed development has included agricultural practices,

timber harvest and road construction that affect water quality and quantity.

Also, although not necessarily a result of

development, ocean conditions including currents and temperature changes, can affect

salmon survival by decreasing food production

and increasing predator population.

From Rivers to Ocean: The Columbia River Basin drains an extremely diverse geographic area, from mountain peaks that bear snow year-round, to sea-level tidal flats where the Columbia meets the Pacific Ocean. In

between are deserts, forests, farmlands, towns and cities.

PERSPECTIVES

“Protecting and

recovering

endangered salmon

and maintaining the

economic viability

of the Northwest are

not mutually

exclusive.”

-Mark Dunn, J.R.

Simplot Company

3

Data courtesy of the Northwest Power Planning Council
HYDROPOWER: The Corps 

Reclamation operates tw

power projects in the F

Bonneville Power Admin

projects. Congress autho

various uses, including p

irrigation, water supply

are also many nonfedera

Dams create barriers to salmo

upstream to spawning and rearing areas, and for juvenile 

nook salmon once traveled as many as 1,200 miles to reac

headwaters in Canada. About one-third of all salmon habit

by a few dams that do not allow fish passage.

Even dams that provide passage systems are a hazard

downriver. The reservoirs that back up behind the dams a

ture, and provide habitat for fish predators. The reservoirs 

and may have adverse effects on the physiological proces

change to adapt from a freshwater to a saltwater environ

injured or killed when they pass through dam turbines on 

The salmon and steelhead that migrate from the uppe

Snake rivers must pass as many as eight or nine dams on

and return.

One solution now used is mechanical bypass systems in

include screens to divert juvenile fish into special conduits 

or around the dam. Juvenile fish are also collected at some

truck and released below the dams. Increased spill is also

fish away from turbines and over the spillways. Flows ar

from storage dams during juvenile migration seasons.

After maturing in the ocean for one to four years, adu

their original habitat to spawn. Fish ladders have been bu

fish to get past them.

Options ➤ Option 1: Continue present operations and ongoing

roughly the existing annual level of investment cont

Option 2: Implement measures such as surface by

crease dam passage survival. Federal agencies wo

more aggressive implementation of measures to im

Option 3: Breach the four federal dams on the lower

HATCHERIES: Hatcheries w

enhance fish runs deplete

fish hatcheries have been

others as mitigation for 

struction. Federal and st

ies. Today, more than 80

are raised in hatcheries. I

Planning Council to do a

focusing on policies, oper

of fisheries management.

will be incorporated in the Four-H Paper.

In hatcheries, adult fish are artificially spawned and th

essentially replace natural freshwater rearing for salm

juvenile fish are reared in ponds or raceways until they

released directly from the hatchery; a small proportion

locations. Hatchery fish migrate to the ocean where th

hatchery or stream where they were released.

Some scientists now believe that hatcheries have 

Columbia Basin. Juvenile wild salmon and steelhead com

are released into the same river habitat. Hatchery fish c

ery practices tend to weaken the gene pool of wild fish. 

population to survive a natural disaster or disease.

Options ➤ Option 1: Includes currently planned programs to con

in mitigation programs.

Option 2: Increase programs to conserve genetic re

currently planned improvements in mitigation progr

Option 3: Increase programs to conserve genetic res

mitigation programs below currently planned levels

What is the Four-H Paper?

Recovery of ESA-listed fish will require changes in the way people affect fish in

each stage of their life cycles: habitat, hatcheries, harvest, and hydropower system.

Decisions about the hydro system, whether they involve breaching dams or making further

changes in river operations, will need to be presented in the context of how they fit with

the other three Hs to be meaningful.

 The federal and regional partners are describing and analyzing recovery options across

the salmon life cycle that involve all four Hs. These options are broadly described, to engage a regional discussion.

 The measures in each “H” will vary depending on the companion measures in the other

Hs. This is important in several respects. It means the agencies are taking a “whole system”

perspective, ensuring that hydropower improvements, in combination with other factors

that affect fish, achieve the desired results.

 The Four-H Paper will clarify these potential trade-offs. The bottom line is this: the

region is working to find the right combination of measures, including improving fish passage at dams, restoring healthy watersheds and clean streams, applying new scientific discoveries to hatchery operations, and negotiating and monitoring harvest, to ensure salmon

runs regain their strength. Actions in each H are critical to recovery.

Goals for Recovery

These goals are expressed by the Federal Caucus in the Four-H Paper and generally reflect

the goals of the regional partners:

Conserve Species: Avoid extinction and foster long-term survival and recovery of Columbia Basin salmon and steelhead, and other aquatic species. Protect and restore abundant, productive, widely distributed, and biologically diverse naturally spawning populations. Foster recovery to levels that can withstand reasonable harvest, the impacts of

continuing human activities, and a range of climatic and ocean conditions.

Conserve Ecosystems: Conserve the ecosystems upon which salmon and steelhead depend. Protect and restore ecosystem processes that create high quality habitat (tributary, estuary, mainstem) and protect and restore high water quality for spawning, rearing and migration.

Assure Tribal Fishing Rights: Restore salmon and steelhead populations, over time, to a level

that provides a sustainable harvest sufficient to allow for meaningful exercise of tribal

fishing rights. Until these restoration levels are achieved, provide tribal fishing opportunities that respect tribal culture and recognize treaty rights.

Balance the Needs of Other Species: Ensure that salmon and steelhead conservation measures are balanced with the needs of other native fish and wildlife species. Ensure the

long term persistence of self-sustaining, complex interacting groups of resident fish

and other aquatic and wildlife species across their native ranges.

Minimize Adverse Effects on Humans: Implement salmon and steelhead conservation measures in ways that minimize their adverse human effects.

The Four H

The Lower

Snake River

Dams

A difficult and controversial

option is an alternative under study by the Corps of Engineers to breach

four dams on the lower Snake River (see map).

Breaching means removing the earthen embankment portion of the dams, which returns the

river to its natural level. The Corps of Engineers

is analyzing four major alternatives for changing

the dams for improved salmon survival. These are:

1. maintain the existing systems for fish passage,

with planned improvements

2. maximize juvenile fish transport, barging or trucking as many fish as can

be collected

3. make major system improvements such as surface bypass systems for juvenile fish

4. breach the dams to restore a free-flowing 140-mile stretch of river.

The Four-H Paper is considering similar options for the Snake River dams,

and looking at dam breach in the context of companion measures addressing other

hydro choices and options for habitat, harvest and hatcheries. The Four-H Paper

also considers the possibility of deferring a decision on whether to breach these

dams, if the science is too incomplete at this time to justify major changes to the

hydropower system, or if it seems likely the fish runs could be restored through

other measures.

Whatever the outcome of the Corps study, breaching the dams would require

Congressional authorization and funding and would take seven to eight years to

complete. Interim measures, in any case, are a high priority.

HYDROPOWER

HATCHERIES
of Engineers operates 12 and the Bureau of

wo of the 14 major Columbia River hydroFederal Columbia River Power System.

nistration markets the power from these

orized the federal dams and reservoirs for

power generation, flood control, navigation,

y, fish and wildlife, and recreation. There

al hydro dams in the Northwest.

on and steelhead migration, for adult fish migrating

fish swimming downstream to the ocean. Chih spawning sites in the Columbia River’s

tat in the Northwest has been blocked

d to young salmon migrating

alter river flows and temperaincrease fish migration time,

ss through which young fish

nment. Juvenile fish can be

their journey downstream.

er parts of the Columbia or

n their journey to the ocean

nstalled at some dams. These

that “bypass” the fish through

e dams for transport by barge or

o used at the dams to divert more

re augmented by release of water

ult fish migrate back upriver to

uilt into the dams to allow adult

g improvements to the system, with

tinuing into the future.

ypass systems for juvenile fish, to inould seek increased funding to pursue

prove passage survival.

r Snake River

were first built in the basin in the 1870s to

ed by overfishing. More than 80 anadromous

n built by federal and state governments and

hydroelectric development and habitat detate agencies and tribes operate the hatcher0 percent of the basin’s salmon and steelhead

In 1997, Congress asked the Northwest Power

a sweeping review of the region’s hatcheries,

rations and their role in the broader context

 This review includes recommendations that

e eggs are incubated until they hatch. Hatcheries

mon and minimize mortality at this life stage. The

y are ready to migrate. Most juvenile fish are then

n are transported and released in streams at other

hey mature. Those that survive will return to the

contributed to the decline of wild salmon in the

mpete for food and shelter with hatchery fish that

an attract predators and carry disease, and hatchLoss of genetic diversity decreases the ability of a

nserve genetic resources and currently planned improvements

esources over the currently planned programs, with the same

rams.

sources, as described in Option 2, and significantly decrease

.

Hs : Issues & Options for Fish

HABITAT: The U.S. Forest Service and Bureau of Land Management

manage more than 50 percent of spawning and rearing habitats

for salmon and steelhead in the Columbia River Basin. Other public lands are managed by state, local and tribal entities.

The habitat required by salmon and steelhead varies with their life cycles, but

it always includes clean, cool water. Overhanging trees provide shade to keep

the water cool. For spawning and the survival of eggs, fish need clean, silt-free

gravel so water can circulate. After hatching, young fish need pools to rest in,

overhanging vegetation to provide places to hide from predators, and plenty of

food, like insects and larvae.

Many human activities can degrade and destroy fish habitat. Logging and road building can

remove shade trees and increase sediment in the water, raising water temperatures and

burying spawning gravels. Heavy livestock grazing destroys streamside vegetation, leading

to bank erosion, sedimentation and higher water temperatures. Manure, pesticides

and agricultural runoff have contaminated lakes, streams and rivers near farm

communities.

Low flows can strand fish or cause water temperatures to rise, increasing risk

of disease and death. Irrigation withdrawals can further reduce streamflows in

the summer when they are already low, reducing quality and quantity of habitat,

and inhibiting juvenile fish migration downstream. Unscreened irrigation ditches

can divert migrating fish into dead-end ditches. Irrigation return flows can

increase water temperature, sediment loading of streams and pollution.

Mining can result in lethal acid or heavy metal contamination of waters. Placer

or dredge mining can destroy spawning gravels and pools where fish live.

Urban runoff from residential and industrial development can contaminate

bodies of water through increased organic materials, like sewage, or household lawn

pesticides washing into streams. As development moves out into new areas, wetlands,

estuaries and streams that nourish fish and wildlife disappear.

Options ➤ These options assume the federal land management agencies will continue to pursue

their current programs and will continue to consult on those programs under the ESA.

Option 1: Moderate increases in efforts to protect and restore habitat, a measurable

increase in federal action and coordination, and increased habitat assessments and

planning efforts using federal funds.

Option 2: State, tribal, local and federal entities would significantly increase level of

coordination, planning and habitat implementation. There would also be an increase in

federal funding for habitat assessments, plans, immediate actions, and monitoring.

Option 3: Similar to option 2, with increased regulation by the federal agencies under

the Clean Water Act and ESA. This option would be implemented if the region cannot

develop a coordinated plan with state and local governments.

HARVEST: Since the 1960s, state, federal and international fishery managers have been cutting harvest rates to protect salmon runs. Commercial and recreational fishing is regulated by a series of state and

federal regulations and court decisions regarding treaty rights. Harvest has been shaped by decades of negotiations between the United

States and Canada and by extensive litigation that has involved ocean,

in-river and treaty fisheries.

Historically, overfishing has contributed to declines in fish populations. Fish

are caught in the ocean by commercial fishing operations, using hooks and

line trolling. Commercial fishing also takes place in the lower Columbia River using gillnets. Native American tribes of the region have treaty rights to catch salmon for their own use, for sale and for cultural and

religious ceremonies. Sportfishers catch salmon in the ocean, mostly from charter boats, and many more

salmon are taken when they migrate up the rivers. Steelhead, caught primarily in the rivers, are considered

a prize sport fish.

Because hatchery fish intermingle with wild fish, harvest rates set

based upon abundance of hatchery fish may result in overharvest of

weaker stocks of wild fish. However, harvest management has in recent years taken this into account.

Options ➤ The following options presume that the beneficial harvest reforms of

recent years will continue.

Option 1: Implement recent Pacific Salmon Treaty agreements. For

in-river fisheries, harvest rates are constrained to 1999 levels, but

may increase modestly if populations of listed fish increase.

Option 2: Implement recent Pacific Salmon Treaty agreements and

continue the in-river harvest constraints developed for 1999. The 1999

in-river harvest rates would continue until recovery goals are achieved.

Option 3: Harvest impacts on listed populations would be reduced

to conservation crisis levels for ten years, after which shift to option 1 or 2.

H ABITAT

H ARVEST

“The salmon fisheries of

this state have, in the

past, been wonderfully

productive. Of late,

however, evidence of a

decrease in the run is

apparent, and all are

agreed that something

ought to be done to prevent

the final extinction of a

great industry.”

-John R. Rogers, Governor

of Washington, 1899
6

The fish and wildlife problems in the Columbia River Basin cannot be solved by

one government, state or community. Recovering species in this large region requires a commitment to cooperation. All major government entities are working

together to develop a coordinated multi-species management plan. Here are the

major parts of this effort:

Federal Caucus: To prepare for ESA consultations and to ensure coordination with regional processes related to all Four Hs – hydropower, habitat, hatcheries and harvest – the nine federal

agencies with responsibilities for some aspect of fish and wildlife recovery formed a caucus

which includes:

■ ESA Regulatory Agencies – National Marine Fisheries Service, U.S. Fish and Wildlife Service.

NMFS and FWS make listing decisions under ESA and prepare recovery plans for listed

species. The federal agencies that own and operate the hydropower system and manage

federal lands in the Columbia River Basin are required to consult with NMFS and FWS on

actions that may affect listed species.

■ Federal Columbia River Power System Action Agencies – The federal agencies that own and

operate the federal hydropower system, called the “action” agencies – Bonneville Power

Administration, Corps of Engineers and Bureau of Reclamation – are required to prepare a

biological assessment of how they propose to operate the dams and how these actions

will affect ESA listed species.

■ In addition, the Environmental Protection Agency is responsible for enforcing the Clean

Water Act; U.S. Forest Service and Bureau of Land Management manage public forest and

range lands that may provide critical habitat for listed species; Bureau of Indian Affairs

acts as a trustee for tribal/individual Indian land and resources held in trust.

Tribes: Indian tribes in the Columbia Basin represent sovereign entities with management authorities for fish, water and wildlife resources within their reservations, as well

as various legal rights expressed in treaties and executive

orders.

States: Washington, Oregon, Idaho and Montana have authorities over fish, wildlife and water resources within their

jurisdictions. In particular, water quantity and quality issues fall under state authorities pursuant to the Clean

Water Act, Safe Drinking Water Act and state water rights

laws. Several states have developed their own management

and recovery plans for fish and wildlife resources of the

Columbia River ecosystem. State water resource agencies

control how much water is withdrawn from streams and

reservoirs for irrigation, municipal and industrial water

supply and other purposes.

Northwest Power Planning Council: The four states also appoint the members of the Northwest Power Planning Council. The council develops a Fish and Wildlife Plan that the

federal action agencies take into account in their planning.

The council also makes recommendations to the Bonneville Power Administration on distribution of ratepayer funds to fish and wildlife programs in the basin.

Columbia River Basin Forum: The Forum includes representatives from the four states, Columbia

River tribes, and the federal government. Its purpose is to provide a forum to address, collaborate on, and coordinate basin level planning and policy for fish and wildlife and related habitat.

Local Governments: Counties and cities throughout the region are also developing action agendas

to aid recovery of listed species. Urban development and construction projects that range from

highway expansions to marina dock repairs must consider effects on listed species.

Citizens, Landowners, Businesses, Institutions: Over the past several decades, new awareness about

the problems of watersheds and wildlife has resulted in hundreds of local restorative actions.

Private and public partnerships have been formed in watershed councils. School programs have

brought kids into the recovery process. Local businesses have pitched in with their own efforts.

Who Has a Role in

Recovery of Listed

Species?

Native Americans

Northwest Indian tribes fished the streams

and rivers of the Columbia River Basin for

thousands of years, and their culture reflects respect for water, fish and wildlife resources. In

1855, four Columbia River tribes signed treaties

giving the U.S. government control of more than

40 million acres of the Northwest. In those treaties, the tribes reserved their right to fish in their

usual and accustomed fishing areas. Other tribes

have treaties or executive orders that recognize

their sovereignty. Tribal leaders are concerned

that the loss of salmon runs means a loss of

cultural practices that have focused on salmon

as spiritual and physical nourishment. Tribal

rights include fishing for subsistence, for sale

and for cultural and religious purposes.

There are 13 federally recognized Indian

tribes in the United States portion of the basin

affected by the Columbia River power system.

They are: the Confederated Tribes of the Colville

Reservation, the Confederated Tribes of the

Umatilla Reservation, the Confederated Tribes

of the Warm Springs Reservation, the Yakama

Nation, the Nez Perce Tribe, the Spokane Tribe

of Indians, the Coeur d’Alene Tribe, the Kalispel

Tribe of Indians, the Kootenai Tribe of Idaho,

the Salish-Kootenai Tribes of the Flathead Indian Reservation, the Shoshone-Bannock Tribes

of the Fort Hall Reservation, the Burns-Paiute

Tribe and the Shoshone-Paiute Tribes of the

Duck Valley Reservation.

How Might Recovery

Plans Affect People?

Recovery plans will cover all facets of managing a healthy ecosystem and may require

changes that are potentially disruptive to some

uses. Farmers and ranchers, barge operators,

hikers, fishers, and hunters, electricity providers

and consumers, and more, depend upon the

bounty of regional resources.

Many people have multiple interests and a

majority support both a healthy economy and

environment. Together, they want to see abundant and harvestable fish and wildlife stocks, a

strong economy and jobs in the Northwest, regulators and government that keep taxes and

power rates as low as possible, and a Northwest

ecosystem that is healthy and productive, sustaining natural resources for many generations

into the future.

PERSPECTIVES

“...a healthy Columbia

River Basin, one that

supports both human

development and the

long-term

sustainability of

native fish and

wildlife species in

native habitats, where

possible.”

-NWPPC, Fish and

Wildlife Program

Overview, 1994

Courtesy of the Northwest Power Planning Council

Courtesy of King County Department of Natural Resources
7

Conservation of Columbia

Basin Fish

The Four-H Paper: Habitat, Hatcheries, Harvest,

Hydropower

A conceptual document that explores alternative

actions needed to recover ESA-listed species in

the basin, organized around four factors that affect the life-cycle of salmon. Consolidates information from the Framework report (below).

Agencies:

Federal Caucus of nine agencies with NMFS

taking the lead

Timetable:

✓ Available in December 1999

Public input

Public meetings and comments, January to

March 2000

Lower Snake River Dams

Lower Snake River Juvenile Salmon Migration

Feasibility Study & Environmental Impact

Statement (EIS)

Feasibility study and EIS of alternatives for four

lower Snake River dams for improved salmon migration. The options include 1) maintain existing

system with planned fish passage improvements;

2) maximize juvenile fish transport by barge or

truck; 3) make major system improvements such

as surface bypass systems for juvenile fish; 4)

breach the dams to restore free-flowing 140-mile

stretch of river.

Agency:

U.S. Army Corps of Engineers

Timetable:

✓ Draft – December 1999

✓ Final – Summer 2000

Public input:

Public meetings January to March 2000

Comment period: through March 2000

Interior Basin Habitat

Interior Columbia Basin Ecosystem Management

Project (ICBEMP) Supplemental Draft EIS

The ICBEMP is developing an ecosystem-based

strategy for the management of Forest Service

and Bureau of Land Management administered

lands in the Columbia River Basin. The Supplemental Draft EIS addresses broad-scale issues of

forest and rangeland health, socio-economic factors and aquatic and riparian health. The aquatic

component of this strategy will provide guidance

on the management of important aquatic habitat

for 72 million acres of federal land in eastern

Oregon and Washington, Idaho, and Montana.

Agencies:

Forest Service

Bureau of Land Management

U.S. Fish and Wildlife Service

National Marine Fisheries Service

Environmental Protection Agency

Timetable:

✓ Supplemental Draft EIS – Winter 2000

✓ Final EIS – to be determined

Public input:

Public meetings - late winter, early spring

Comment period - 90 days

Regional Framework

Multi-Species Framework Project

Describes the structure and components of the

Columbia River ecosystem, and the biological,

economic and social effects of a range of general

recovery management approaches. Provides an

analytical base for the Four-H Paper (see above).

Agencies:

NW Power Planning Council in association

with Columbia River Basin Forum, a coalition of states, tribes and federal government

Timetable:

✓ Preliminary Report – December 1999

✓ Final Report – January 2000

Federal Columbia River

Power System

Biological Assessment

Descriptions of how the three

federal action agencies propose to

operate the Federal Columbia River

Power System dams, and their

assessment of effects on fish and

other aquatic species listed under

ESA. This assessment takes into

consideration information from

other related studies.

Agencies:

U.S. Army Corps of Engineers

Bonneville Power

Administration

Bureau of Reclamation

Timetable:

✓ January 2000

Public Input:

Not required, but comments

received will be reported to

NMFS and FWS for consideration

in preparing their Biological

Opinions.

Biological Opinions

Response to the Biological Assessment, either agreeing with the proposed actions or if not, outlining alternative measures.

NMFS writes opinion on

salmon and steelhead.

FWS writes opinion on

Kootenai River white sturgeon,

bull trout, and five species of

Snake River snails.

Agencies:

National Marine Fisheries

Service

U.S. Fish & Wildlife Service

Timetable:

✓ May 2000

REPORTS ➤A series of documents (described below) that analyze recovery options will be released this fall and winter for public comment and review.

PUBLIC INPUT ➤ In January to March 2000, public meetings will be held around

the region, dates and places to be announced in further issues of this Citizen

Update.

DECISIONS ➤ The “action” agencies - Bureau of Reclamation, Corps of Engineers

and Bonneville Power Administration, will make final recommendations; NMFS

and FWS will issue biological opinions in time for some of the hydropower

options to be applied to spring migration of salmon; and action agencies make

their operating decisions.

IMPLEMENTATION ➤ Then it’s the long haul – beginning the process of implementing these policies in the years ahead for all four Hs – hydropower, habitat, hatcheries, harvest.

The goal of the Federal Caucus is to participate in a coordinated decision-making process in which the entire region can build solutions to recover listed species. This process will be open and accessible to the public, so the thoughts

and views of Northwest citizens can be considered in decisions.

Decision Tools And Documents

Endangered Species Act

Federal Documents

Related Federal & Regional Documents

The following studies will contribute to the development of a basinwide management plan for

recovering fish and wildlife. NMFS and FWS will also consider them in final biological opinions

on the hydropower system.

What

Happens

Next?
8

Science: How it

works toward recovering

endangered fish

Science can help us better understand

the needs of salmon throughout their

life stages. The scientific approach to the

recovery of fish and wildlife involves biology, ecology and other related sciences,

and a range of models for exploring data,

identifying key risk factors and evaluating management options. If you would

like to learn more about relevant research

efforts visit the Web sites listed on this

page.

A Publication

of the Federal Caucus,

Columbia River Basin

Fish Recovery

PERSPECTIVES

“We did not inherit this earth or

its natural resources from our

ancestors, we are only borrowing

them from our children’s

children; therefore, we are duty

bound and obligated to protect

them and use them wisely until

such time that they get here, and

then they will have the same

obligations.”

-Eugene Greene, Sr., Warm

Springs

For information or copies of reports:

Call 1-509-358-7415, write to Federal Caucus Comment Record c/o BPA-PL, 707 West Main

Street, Suite 500, Spokane, WA 99201, or go to the Federal Caucus Web site.

Federal Caucus Web site:

www.bpa.gov/federalcaucus

What you can find on this Web site:

• Citizen Updates as available

• Public meeting dates and locations

• Links to agencies, reports and further information about recovery

In addition, the following Web sites provide further useful information:

Lower Snake River Juvenile Salmon Migration Feasibility Study: www.nww.usace.army.mil

Interior Columbia Basin Ecosystem Management Project: www.icbemp.gov

NMFS Salmon Information: www.nwr.noaa.gov

Science Information: www.nwfsc.noaa.gov/cri, www.nwfsc.noaa.gov/pubs/nwfscpubs.html

Multi-Species Framework: www.nwframework.org

Next Issues of this Citizen Update

#2 - A summary of the Four-H Paper

#3 - An overview of the other documents released

All issues will keep you updated on public meetings as they are scheduled.

Provided By:

The Federal Caucus: National Marine Fisheries Service, U.S. Army Corps of Engineers, Bonneville

Power Administration, Environmental Protection Agency, Bureau of Reclamation, Fish and Wildlife

Service, Bureau of Indian Affairs, Bureau of Land Management and Forest Service.

For more

Information:

Printed in the U.S.A on recycled paper.

Federal Caucus Comment Record

c/o BPA-PL

707 West Main Street, Suite 500

Spokane, WA 99201

Some small illustrations are courtesy of King County Department of Natural Resources

BULK RATE

U.S. POSTAGE

PAID

SEATTLE, WA

PERMIT NO.1700

Above photo, and several interior, courtesy of the Seattle Aquarium.