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A publication of the Federal Caucus, Columbia River Fish and Wildlife Recovery

Citizen Update

Conservation of

Columbia Basin Fish

Final Recommendations for a Basinwide “All-H” Salmon Recovery Strategy

Winter 2000 • Issue 5

C itizen Update #5 presents highlights of the

 Federal Caucus’ Final Basinwide “All-H”

Salmon Recovery Strategy. It outlines

approaches the Caucus agencies are recommending to recover threatened and endangered

Columbia Basin fish, along with specific actions and implementation methods. Four

previous Citizen Updates provided background

and context for the strategy described in this

publication. They also give a chronology of

the federal agencies’ process in developing

the plan, which began in 1998. (See the back

page for information on how to order other

documents.)

T he year 2000 will go down as a milestone for

the Columbia River Basin’s fish and aquatic

life. The Federal Caucus has prepared a

comprehensive strategy for recovering endangered

fish and other aquatic species that inhabit the basin’s

rivers and streams. The strategy describes actions

that are expected to achieve recovery and ways to

implement them, and will serve as a blueprint in the

years ahead to guide federal actions and decisions on

species recovery. Finalizing this plan highlights the

transition from planning to implementation.

Beginning in 1999, the nine-agency Federal

Caucus set a goal to come up with a comprehensive

“All-H” Recovery Strategy that addresses human

activities – habitat, harvest, hatcheries

and hydropower – that have contributed

to the decline of salmon and other

aquatic creatures in the basin. The

strategy outlines science-based approaches to improving conditions for

species at every life stage and in all

habitats (the Columbia River, the

many tributaries and the estuary)

where they live. It also takes

into account the natural

cycles and how these

affect environmental

conditions.

The Recovery

Strategy puts a high

priority on actions that

have the best chance of

being implemented and are most likely to provide

solid biological benefits. It includes immediate

actions to jump-start recovery and long-term actions

to benefit fish. Continued scientific research, along

with a focused monitoring and evaluation program,

will allow the Caucus agencies to apply evolving

knowledge.

The Caucus agencies designed a rigorous framework for tracking progress toward recovery. Accountability is based on performance standards and

evaluations in three, five and eight years. If the

Recovery Strategy is not working, alternative or more

aggressive actions would be considered.

The Federal Caucus worked to include the

citizens of the Northwest in developing the Recovery

Strategy. In December 1999, the Caucus agencies

released a draft of the All-H Recovery Strategy that

outlined the difficult choices the region faces in

recovering species listed under the Endangered

Species Act (ESA).

The Federal

Caucus held 15

public hearings, attended

by more than

9,000 citizens in

the region. The

Caucus also met with

Northwest Indian tribes,

which have trust and treaty

rights in the region’s fish and

wildlife resources. In preparing the

final Recovery Strategy, the Caucus
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agencies considered over 60,000 written comments

that were received during the formal public comment period. In July 2000, the Caucus released a final

draft of the Recovery Strategy and the draft NMFS

and FWS Biological Opinions to states and tribes for

technical review. The Caucus met with state and

tribal technical and policy level officials to identify

areas of agreement and areas of concern.

To be successful, any strategy will require a

significant commitment of resources for recovery, as

well as for monitoring and evaluation. The Caucus

agencies expect to use existing programs and capabilities as much as possible, and new federal initiatives where appropriate, to advance the All-H Strategy. The Caucus agencies recognize they cannot

achieve recovery results without regional support

and participation. State and tribal governments,

along with the Northwest Power Planning Council

(Council), must be major players in the effort to

restore fish and other aquatic species in the Columbia Basin.

There is sound science behind the federal agencies’ decision to view recovery in terms of all of the

Hs (habitat, harvest, hatcheries, hydropower).

Research in the late 1990s indicated that hydro

system improvements alone will not recover all of

the listed species – not even dam breaching. Land

use, water quality in the tributaries, hatchery policies

and harvest practices have contributed substantially

to the decline of species, according to the research.

Studies also suggest the greatest opportunities for

improving survival hinge on efforts to restore the

habitat where fish spawn and rear, in the tributaries

with adequate adult escapement and in the Columbia

River estuary. Scientific evidence also indicates that

recovery efforts would benefit from a major overhaul

of the hatchery system.

Much of the regional recovery debate has focused

on removal of four Snake River dams. Of the 12

species of salmon and steelhead listed under the

Endangered Species Act that inhabit the vast Columbia Basin, just four Snake River populations would

substantially benefit from breaching the Lower Snake

River dams. Also, dam breaching must be approved

and authorized by Congress and could not be quickly

implemented. The high cost of dam removal would

preclude other actions needed throughout the basin.

Therefore, the Recovery Strategy does not recommend dam breaching at this time. The All-H Strategy

emphasizes actions that can be undertaken quickly,

have solid and predictable benefits, and are likely to

benefit a broad range of fish species. However, dam

breaching as an option will be further developed in

the event that future conditions warrant it. Nevertheless, the Caucus believes that the combination

of measures outlined in the All-H Strategy, including

aggressive actions on the hydro system, as well

as restoration of habitat and improved use of

hatcheries will have greater positive benefit than

dam breaching.

The Framework for Recovery:

Structure of the All-H Recovery Strategy

and the Biological Opinions

The Federal Caucus has organized a framework

for implementing the various actions laid out in the

Recovery Strategy over the next ten years. It establishes clear objectives and provides for ways to

measuring their success. Consistent with the All-H

Strategy, the NMFS Biological Opinion establishes

what specific performance standards are necessary

to achieve survival of the listed species. NMFS has

Agencies of the Federal Caucus

The National Marine Fisheries Service

(NMFS) and U.S. Fish and Wildlife Service

(USFWS) are responsible for species recovery

and for preparing the Biological Opinions that

guide hydro operations that affect listed species. They will prepare recovery plans for each

listed species. The Army Corps of Engineers

(COE), Bureau of Reclamation (BOR) and

Bonneville Power Administration (BPA) are

the action agencies that operate the federal

hydro system and market federal hydro power.

They are responsible for implementing many of

the recovery activities. The U.S. Forest

Service (USFS) and the Bureau of Land

Management (BLM) have a major role in

implementing habitat-related recovery actions

on federal land. The Environmental

Protection Agency (EPA) regulates water

quality and compliance with the Clean Water

Act with the states and tribes and is helping to

bring about habitat restoration and water

quality improvements throughout the Columbia

Basin. The Bureau of Indian Affairs (BIA)

helps to assure the federal government’s treaty

and trust obligations to Northwest Indian tribes

are considered in every aspect of the All-H

Strategy.
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Selected Recovery Actions

The following actions are a selection from an array of recovery strategies that will be evaluated at years

three, five and eight.

Habitat

Manage Federal Lands to Protect Fish (USFS, BLM)

■Through Interior Columbia Basin Ecosystem Management Project’s (ICBEMP’s) and the Northwest Forest Plan’s aquatic

strategies, provide a base for habitat protection.

■Implement seven watershed restoration initiatives targeting core populations most at risk.

■Implement multiple-scale assessments and data management systems.

Restore Basinwide Habitat

● ■Facilitate Lower Columbia River Estuary Program implementation (LCREP, EPA).

● ■Improve predator control (including developing a seabird management plan) (COE, NMFS, FWS).

● ■Authorize and fund expanded Corps of Engineers Restoration Program.

● With the Northwest Power Planning Council, develop subbasin and watershed assessments and plans.

● ■Fix flow, screening and passage problems in priority subbasins beginning in 2001 in the Methow, Upper John Day and Lemhi.

■Support Total Maximum Daily Load (TMDL) development and implementation under the Clean Water Act (BPA).

● ■Evaluate opportunities to improve spawning habitat in the Ives Island area.

■Protect Hanford Reach (FWS, DOE).

■Initiate a Lower Columbia Greenway Project.

Harvest

● Seek opportunities to regulate fishing impacts on listed fish by helping the states and tribes develop alternative fishing

techniques and/or locations and by enabling more selective fisheries and helping to develop the necessary institutional

mechanisms and analytical capabilities to support management of selective fisheries (BPA, NMFS, USFWS).

● Seek opportunities to provide for managing fisheries and contributing to the transition to selective fisheries and for implementing the 1999 Pacific Salmon Treaty Agreement.

Hatchery

Reform Production Facilities

● Develop approved Hatchery Genetic Management Plans (HGMPs) for all hatchery facilities in the Columbia Basin.

● Implement HGMPs at federal, state and tribal facilities by making necessary operational improvements and capital changes in

programs and facilities.

Hydropower

Additional Capital Improvements at Dams (COE, BPA, EPA)

● Implement aggressive passage improvements, including specific passage upgrades for juvenile fish at individual dams.

Improvements vary by location, including relocation of bypass outfalls, refined screens and bypass facilities, surface bypass,

spillway modifications and more effective spill, improved turbine operations and design, predator management, and mainstem

and estuarine habitat.

Improve Operations for Fish (BPA, COE, USBR)

● Improve flow operations to provide water conditions beneficial to migrating juvenile and adult fish. Seek improvements in

Canadian flows with a potential of up to 2 maf over time. Seek immediate improvements from the Snake River contingent

upon ongoing discussions. Conduct flood control study to allow further flow improvements. Implement flood control adjustments to reduce risks to listed resident fish from salmon flows.

● Continue “spread the risk” approach for fish transportation; reduce trucking; continue to study delayed mortality issue.

● Implement measures to improve water quality while meeting fish passage objectives. Develop a Water Quality Improvement

Plan for dissolved gas and temperature.

■Apply anadromous fish priorities to relicensing for nonfederal dams.

■Improve existing habitat and fully evaluate passage opportunities through relicensing and consultation for Idaho Power

Company dams.

● Biological Opinion Action

■ Basinwide Salmon Recovery Strategy Action
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Hydrosystem

• improve survival through the hydro system

• improve instream and reservoir environmental

conditions

Habitat

• prevent habitat degradation

• restore high-quality habitat

• restore/increase habitat complexity

Harvest

• prevent overharvest

• provide sustainable fishery

Hatchery

• reduce hatchery operations potentially harmful

to wild fish

• implement conservation hatchery actions

• Increased stream miles meeting water quality standards (temperature and sediments)

• Increased stream miles with adequate instream flows

• Increased stream miles opened to fish access

• Increased number of diversion areas screened

• Increased acres and/or stream miles of habitat protected or restored

• Constrain harvest rates of listed fish

• Increase escapement rates

• Increase number of biologically appropriate naturally

spawning adults

• Improve fish health and fitness

• Improve hatchery facilities, operation and management

and reduce potential harm to listed fish

Performance Standards

• improve survival rate

• eliminate practices harmful to wild fish

Performance Measures

developed preliminary performance standards for

habitat based on environmental conditions, for the

mainstem hydropower system based on juvenile and

adult fish survivals, and for hatchery reforms based

on hatchery genetic management plans. These

performance standards will serve to measure

progress and judge whether alternative strategies are

needed to rebuild populations and achieve recovery.

The examples and timeline below illustrate this

accountability framework for recovery actions.

In addition to performance standards, the Federal Caucus has built research, monitoring and

evaluation programs into all facets of the All-H

Strategy. There are gaps and uncertainties associated

with the science related to recovery. The region

needs to continue to seek new information to aid in

understanding the impact of human activities on

listed species and in developing effective recovery

measures. This framework allows the Caucus agencies to apply evolving scientific knowledge to the

strategy.

Under the NMFS Biological Opinion, the action

agencies (Army Corps of Engineers, Bureau of

Reclamation and Bonneville Power Administration)

will prepare one- and five-year implementation plans

for each H over the next 10 months. The action

agencies will release initial plans in the spring to be

reviewed by a panel of independent scientists and

finalize the plans by September 2001. Specific

implementation activities will be detailed in annual

Examples of Biological Performance Standards and Measures

Specific performance standards are established in the NMFS Biological Opinion.

• Juvenile survival rate of X% at each project

• Cumulative juvenile in-river system survival rate of X%

• Adult survival rate of X% per project and X%

systemwide

• Cumulative system adult and juvenile survival rate

of X%
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Examples of Hydro System Survival Standards [% survival]

Specific performance standards are established in the NMFS Biological Opinion.

Juvenile Standard 1/ Juvenile Current 1/ Adult Standard Adult Current

Snake River Spring/Summer Chinook 47-65% 46-64% 85% 80%

Snake River Fall Chinook 9-16% 6-15% 72% 60%

Upper Columbia Spring Chinook 54-76% 45-66% 92% 89%

Lower Columbia Spring Chinook 86-95% 83-91% 98% 97%

Lower Columbia Fall Chinook 62-85% 55-81% 96% 94%

Snake River Steelhead 38-57% 36-53% 85% 80%

Upper Columbia Steelhead 38-76% 30-67% 92% 89%

Middle Columbia Steelhead 38-76% 30-67% 92% 89%

Lower Columbia Steelhead 80-94% 75-91% 98% 97%

1/ Broad ranges reflect variable hydraulic/environmental conditions and uncertainty about delayed mortality.

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

and five-year plans. Other agencies may undertake

similar planning for salmon recovery actions they

undertake or fund.

The FWS Biological Opinion establishes specific

measures to protect bull trout and Kootenai River

white sturgeon. These measures focus on the Upper

Columbia dams where the two species reside. Taken

together, the two Biological Opinions balance the

needs of listed salmon and resident fish across the

Columbia Basin.

Under the NMFS Biological Opinion, the action

agencies will prepare annual progress reports and

NMFS will issue an annual findings letter. In years

three, five and eight, NMFS will assess whether the

program of hydropower, habitat and hatchery im3-Year Implementation

Check-in

Review implementation of:

• Biological Opinion

actions

• All-H actions

• Conservation measures

provements, along with adequate research, monitoring and evaluation, have been implemented and are

meeting the performance standards. If performance

standards are not being met, the Caucus will renew

its efforts by accelerating recovery measures, incorporating new actions, or reconsidering alternative

strategies.

In order to jump-start actions that provide high

benefit for ESA-listed species, BPA and the Northwest Power Planning Council have solicited proposals for high-priority projects. Through this solicitation, BPA will fund a limited set of projects for 2001

for immediate, on-the-ground benefits. The project

must be ready for immediate implementation in

2001, including all necessary permits and approvals.

5-Year Evaluation

• Implementation of

actions

• Performance standards

• Population trends

8-Year Evaluation

• Implementation of

actions

• Performance standards

• Population trends

Achieve

Performance

Standard

Rolling five-year implementation plans updated annually

2000 NMFS Biological Opinions Timeline Overview
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These high-priority actions are intended to:

· address imminent risks to the survival of one or

more species listed under ESA and have measurable, quantitative, biological objectives;

· produce largely self-sustaining habitat after

activities are completed;

· connect patches of high-quality habitat or extend

habitat out from a core area;

· improve conditions in water-quality-limited

streams; and

· address a habitat enforcement issue and result in

the protection of listed anadromous fish habitat

including marine habitat.

From Plan to Implementation

The Federal Caucus Recovery Strategy places

priority on actions with the best chance of being

implemented, the best chance of providing solid and

predictable biological benefits and the best chance

Highlights of the Federal Hydro System’s Biological Opinions

USFWS Biological Opinion

· Developed after consultation with COE, USBR

and BPA.

· Includes federal dams located in Oregon,

Washington, Idaho and Montana.

· Coordinated this Biological Opinion with

NMFS to address conflicts in operational

requirements for different species.

· Considered effects of operation and maintenance of the Federal Columbia River Power

System (FCRPS) on Kootenai River white

sturgeon and bull trout.

For Kootenai River White Sturgeon

· Modified flood control for Libby and Hungry

Horse.

· Secured operations at Libby to “trigger” sturgeon spawning and provide rearing habitat.

For Bull Trout

· Modified flood control for Libby and Hungry

Horse.

· Establish minimum flows.

· Set summer and winter ramp rates.

· Require monitoring to determine the extent of

bull trout use of the lower Columbia and

Snake rivers affected by FCRPS.

NMFS Biological Opinion

· Important difference from 1995 Biological

Opinion  sets goals to increase survival in

locations other than the dams and establishes

performance standards.

· In five years, review all populations for any

decline. Work with the three federal agencies

(USBR, COE and BPA) to determine how to halt

decline.

· In eight years, ask two crucial questions: Are

salmon populations growing? If yes, are they

growing fast enough for statutory recovery in

48 years?

· Assumes improvements in habitat conditions,

hatchery practices, harvest strategy and nonbreaching adjustments to the dams.

· If inadequate improvements are measured in

five years, seek alternative recovery strategies.

· Breaching would require Congressional

authorization.

Make the migration route as fish-friendly as

possible

· Set minimum flows.

· Improve spill.

· Upgrade passage.

· Improve habitat.

of benefiting the broadest range of species. The

Caucus agencies can implement much of the All-H

Strategy using existing authorities and capabilities.

The Caucus agencies are entering into a Memorandum of Understanding (MOU) that spells out how

they implement the All-H Strategy. The MOU says the

Caucus agencies will coordinate in planning and

implementing actions across all Hs, as well as in

executing their responsibilities to Indian tribes and

living up to mandates under the Endangered Species

Act, Clean Water Act and other laws that relate to the

conservation of fish in the Columbia River Basin.

The MOU sets up a general structure for federal

recovery work and creates a Habitat Team to coordinate priorities and activities. The MOU also continues the forum established under the NMFS and

USFWS Biological Opinions to coordinate hydro

system operations. It commits the Caucus agencies

to coordinate priorities for salmon recovery. The

Federal Caucus will host regular meetings that are

open to the public.
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Partners in Success

Partnership is the key to a successful species

recovery program. The Federal Caucus’ Recovery

Strategy depends on active and effective leadership

from all parties and much greater coordination

among federal, state, tribal and local agencies than

ever before. The Caucus agencies intend their activities to complement and encourage other efforts.

The Federal Caucus designed the actions in the

Recovery Strategy to dovetail with current recoveryrelated programs in the region. Rather than reinvent

the recovery wheel, the Caucus determined ways its

recommendations could be implemented as part of

processes already in place, including the Council’s

fish and wildlife program, NMFS’ Biological Opinions

and regional forum process, the USFWS Biological

Opinion and the federal land management agencies’

Interior Columbia Basin Ecosystem Management

Project (ICBEMP).

The Caucus agencies will seek to merge the All-H

strategies with other efforts in the region. The

goal is to weave together threads of a number of

disparate programs to create a unified, efficient

approach that meets ESA recovery goals for fish

and other aquatic species. The federal agencies

will establish mechanisms to coordinate federal

actions in each H with other efforts in the region.

T he ESA requires NMFS and USFWS to

prepare formal plans that set recovery

goals for specific listed populations. NMFS

has initiated recovery planning for salmon and

steelhead in the Upper Willamette and Lower

Columbia rivers and will begin planning for species

in the interior Columbia River Basin in January

2001. USFWS completed a recovery plan for

Kootenai River white sturgeon in 1999, and other

recovery plans for bull trout and Snake River snails

are under way. The agencies expect these recovery

plans to provide specific numeric and qualitative

criteria for eventually being able to remove these

species from ESA protection.

The All-H Strategy provides goals, objectives

and actions at the scale of the entire basin. But

much more specific recovery goals and measures

need to be determined at the local level. This is

where the Caucus agencies intend to link up with

the Council’s process for addressing the unique

ecological and social conditions in the Columbia

River Basin. The Council has initiated “provincial”

reviews to assess each subbasin and prepare a fish

and wildlife plan specific to existing circumstances. The Council’s new approach anticipates

subbasin plans will link up with state and locally

driven efforts already under way in specific areas.

The region’s government agencies and tribal

fish and wildlife managers are already active

participants in the Council’s process. NMFS and

USFWS will strive to integrate their recovery

planning with the Council’s work to engender a

broadly supported, unified effort.

Merging Federal and Council Efforts

For hydropower, the agencies will continue to work

through the regional forum process NMFS created

with its Biological Opinions on salmon and steelhead. For habitat, the Caucus Habitat Team will

coordinate efforts among the agencies and with the

Council, whose fish and wildlife program is a logical

place to include many habitat and hatchery measures. Harvest will continue to be coordinated

through the existing forums in U.S. vs. Oregon and

the Pacific Salmon Commission.

The Caucus agencies will share information on recovery efforts, including the status

of progress and implementation plans with

the region. Information will also be updated regularly on the Caucus Web site.
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Further Information and Contacts

If you would like more information on the Final

Basinwide Salmon Recovery Strategy, the Federal

Caucus or Columbia Basin fish and wildlife recovery,

or to order previous issues of the Citizen Update or

other documents, please visit the Federal Caucus

Web site. CDs are available with the All-H Recovery

Strategy and supporting documents, the NMFS

Biological Opinion and the USFWS Biological

Opinion. You can also contact the Caucus by phone

or mail.

Phone

Toll free: 1-888-921-4886

E-mail

federalcaucus@bpa.gov

Mail

Federal Caucus

c/o BPA - P

P.O. Box 3621

Portland, OR 97208

Web sites

· For information on the Federal Caucus All-H

Strategy, visit www.salmonrecovery.gov. This

Web site lists other Internet links related to

Federal Caucus activities and documents.

· For information on the NMFS’ Biological Opinion

and recovery planning, visit www.nwr.noaa.gov/

1hydrop/hydroweb/fedrec.htm.

· For information on the USFWS’ Biological Opinion and recovery planning, visit www.r1.fws.gov/

finalbiop.

· For information on ICBEMP, visit

www.icbemp.gov.

· For information on the Northwest Power Planning Council’s fish and wildlife activities, visit

www.nwppc.org.