National Marine Fisheries Service

Findings: Fish Recovery Efforts

Off to a Solid Start

Citizen Update

July 2002 • Issue 9

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

D espite many chal-

 lenges in 2001, an

 ambitious 10-year

 fish recovery program in the Columbia River

Basin is off to a satisfactory

start, according to the National

Marine Fisheries Service. While

the second lowest water year

on record and extended power

emergencies forced some

recovery actions to be modified,

most efforts are moving

forward as planned. This is

an important first step

forward in the region’s commitment to boost survival of fish

listed as threatened or endangered under the Endangered

Species Act. Listed fish under

NMFS’ jurisdiction include

Northwest salmon and steelhead.

In a findings report, “Findings Regarding Adequacy of the

FCRPS Action Agencies’ 2002

Annual Implementation Plan,”

issued in July 2002, NMFS

concludes that actions taken in

2001 and planned in 2002 by

key federal agencies to benefit

listed fish are largely on track

to meet initial goals, or benchmarks, set for 2003. Implementation in 2001 was not perfect,

the report notes, but agency

plans for 2002 correct many of

the problems encountered in

2001. Where issues remain, the

agencies are working together

to resolve them.

This Citizen Update summarizes the National Marine

Fisheries Services’s 2002

findings report, which can be

viewed in full on the Federal

Caucus Web site at

www.salmonrecovery.gov. A

printed copy can be obtained by

calling 1-888-921-4886 or by emailing federalcaucus@bpa.gov.

NMFS’ report evaluates how

well the Action Agencies’ 2001

Many federal

agencies involved in

Columbia Basin fish

recovery efforts

NMFS’ 2002 findings report

primarily evaluates recovery

actions and plans of the three

federal Action Agencies: the

Bonneville Power Administration, U.S. Army Corps of Engineers, and Bureau of Reclamation. Besides NMFS, other

federal agencies participating in

fish recovery efforts include:

• U.S. Fish & Wildlife

Service

• Bureau of Land

Management

• U.S. Forest Service

• Environmental

Protection Agency

• Natural Resource

Conservation Service

• Bureau of Indian Affairs

• National Park Service

A summary of the Action

Agencies’ progress report on

2001 actions is contained in the

May 2002 Citizen Update.

Highlights of 2001 actions taken

by other federal agencies are

included in this issue.

actions and 2002 Implementation Plan meet objectives set

out in the Basinwide Salmon

Recovery Strategy (All-H Paper)
2

and NMFS’ Biological Opinion.

(See the May 2002 Citizen

Update insert, Coming up to

Speed on Fish Recovery, for

more background on the All-H

strategy and Biological Opinion.) Issued in December 2000

by NMFS, the opinion recommends “reasonable and prudent

alternative” actions to be taken

over the next 10 years in the

hydro system and off-site in

tributaries and adjacent lands,

to avoid jeopardizing listed fish.

Besides annual evaluations, the

opinion sets interim “check-in”

dates of 2003, 2005 and 2008

for more comprehensive evaluations of recovery efforts and

fish survival. The ultimate goal

by 2010 is to achieve specified

survival objectives for listed

fish in the Columbia River

Basin.

The intent of NMFS’ annual

findings report is to ensure

recovery efforts are staying on

track to meet benchmarks at

the future check-ins. Where the

federal agencies’ collective

efforts fall short of expectations, NMFS makes recommendations for getting back on

course.

The findings report focuses

on implementation plans and

actions of the three Action

Agencies with responsibilities

for the Federal Columbia River

Power System – U.S. Army

Corps of Engineers, Bureau of

Reclamation and Bonneville

Power Administration. These

measures are evaluated in the

context of comprehensive

recovery efforts throughout the

basin by many federal and state

agencies. Together, these

agencies are pursuing hundreds

of projects, from large-scale

hydro operation improvements

in the Columbia and Snake

rivers to a series of smaller –

but collectively important –

habitat restoration projects in

dozens of streams.

Summary of Findings

In its findings report, NMFS

determines that the vast majority of measures taken in 2001

and proposed for 2002 appear

likely to meet 2003 benchmarks.

The 2003 check-in focuses on

whether a sufficient number of

actions are proceeding on

schedule. Evaluations of effectiveness of those actions will

not occur until 2005 and 2008

check-ins, and are not addressed by the 2002 findings

report.

Figure 1 shows NMFS’

cumulative findings. NMFS

considered each action to fall

into one of five categories,

based on current status or 2002

plans for implementation. Each

category is explained in the key.

Figure 1: Fish Recovery Findings

Based on Action Agencies’ 2001 progress and 2002 plan.

Dark green measures have been completed or are considered to be proceeding “as expected” to meet 2003 requirements.

Light green measures are under way, but have no identified expectations for

2003. These are measures being implemented to meet final 2010 benchmarks.

Because this is so early in the ten-year process, NMFS is not yet evaluating

whether these measures are on track, only acknowledging whether they are

under way or not.

Measures coded dark tan are not yet under way, but have no specific schedule

and are not a concern for meeting 2003 check-in criteria.

Measures coded light tan have a modified schedule or scope (usually a justified

delay) but are not a concern for meeting 2003 check-in criteria.

Measures coded red are not under way to NMFS’ satisfaction and are being

addressed to put them back on track. These reflect measures with modified

schedule or scope (including delays) requiring adjustments and resolution to

meet 2003 or future benchmarks.

Key for Figure 1 and Table 1
3

Table 1: Current Status of Fish Recovery Actions

The number of actions called for in the NMFS Biological Opinion appear directly after the circle. ♦Diamonds indicate

actions that were affected by low water in 2001 and energy emergencies (usually, they could not be fully implemented),

but are back on track for 2002.

 Procedural Measures NMFS Findings

 Recovery Plans 12 1

Develop and implement one- and five-year plans to address recovery actions. Requires individual plans for hydro system actions,

habitat projects, etc., as well as plans integrating these actions.

 Hydropower System Measures NMFS Findings

 Water Management 15 3 4 3

♦Meet river flow objectives; coordinate flow and spill operations for fish. ♦Operate federal and non-federal reservoirs to meet

flow, refill and flood control objectives. Evaluate, adjust and conserve water available for salmon flows. Address other Columbia

Basin project effects on fish.

 Juvenile Fish Transportation 10 3 1

♦Current and near-term actions, including maximized transportation during summer migration and extended barge use (reduced trucking) in lower Snake dams and at McNary Dam. Studies focused specifically on transportation. Future actions,

including an adult fish tag detection system and transportation improvements.

 Juvenile Fish Passage 11 30 3 2

♦Implement annual spill program. ♦Improve spill capability, including transmission system improvements and turbine operations for optimal survival. Specific studies at individual dams and systemwide. ♦Configuration studies at Bonneville, John Day

and Lower Monumental dams.

 Reservoir Passage 3 3 1

Control fish and avian predators. Predation studies.

 Adult Fish Passage 5 17 1

Studies and measures addressing factors that affect adult migrants. Fishway and auxiliary water supply improvements.

 Water Quality 4 8 1 1 1

Total dissolved gas reduction studies and measures, including use of spillway deflectors. Water temperature improvement studies.

 Fish Passage Facilities 3 2

Operations and maintenance measures. Advance planning for alternative actions.

 Habitat Measures NMFS Findings

 Improvements and Studies 6 1 7 1

Tributary and mainstem habitat protection and improvements, including projects in priority subbasins. Habitat studies, planning

and improvements in the Columbia River estuary.

 Harvest Measures NMFS Findings

 Selective Fishing Methods 5

Develop or expand use of selective fishing methods. Address effects of selective fishing methods on fishery management systems

(develop new procedures, databases, etc.). Develop credit system for harvest reforms.

 Hatchery Measures NMFS Findings

 Plans and Improvements 9 1

Develop/implement hatchery management plans, a comprehensive fish marking strategy, and safety net programs.

 Research, Monitoring NMFS Findings

 and Evaluation Measures

 Studies and Data Management 11 1 9

Define/evaluate listed fish populations in basin to develop effective recovery goals. Develop a basinwide fish population and

environmental status monitoring program. Monitor effectiveness of actions taken. Develop a common data management system

for fish populations, water quality and habitat information. Implement other specific research/monitoring actions outlined in

Biological Opinion.
4

Overall, NMFS is satisfied

that 176 of 199 required actions,

or 88 percent, are moving

forward adequately or are on

track for future implementation

to meet required objectives.

Another nine actions are not

yet under way, but have no

required timeline. The remaining 14 actions have been modified (primarily delayed) and

present challenges for meeting

mid-point objectives, according

to the findings report. Most

(nine) of these actions are

related to fish studies considered important for future

progress evaluations. NMFS is

committed to working with the

appropriate federal agencies to

resolve these challenges.

General Analysis of

Progress in 2001

As noted by NMFS, poor river

conditions caused by the low

runoff in 2001 and power emergencies played a major role in

the Action Agencies’ operations

of the hydro system last year,

affecting several recovery

projects. In particular, spill for

fish passage had to be limited to

meet emergency energy needs

and address low water conditions. Emergency needs and the

low runoff also affected juvenile

fish transportation, which was

maximized in the lower Snake

River as provided for in the

Biological Opinions.

In-river survival of juvenile

fish was poor for all endangered

species in 2001 compared to

normal water years. However,

the estimated total system

survival (including transported

fish) for Snake River chinook

was within the range of NMFS

performance standards. Juvenile system survival for Mid- and

Upper Columbia River chinook

was somewhat lower than the

performance standards, while

system survival estimates for

Snake and Columbia River

steelhead were substantially

lower than the performance

standards.

Total 2001 adult returns at

Snake and Columbia River

dams, including both hatchery

and wild fish, were among the

highest on record. While there

is indication that the ocean may

be returning to more productive

conditions than the past couple

of decades, it is too soon to

determine if this is a short- or

long-term trend. In addition,

preliminary analysis of adult

fish migrating through the dams

indicates a high survival rate.

Implementation successes

Despite Mother Nature’s

curve ball and the power markets’ instability, the Action

Agencies and other federal

agencies accomplished numerous on-the-ground projects and

studies. In its findings report,

NMFS particularly noted the

following: significant developments in new fish passage

technologies at dams; many

habitat improvements ranging

from physical work (plantings

or culvert installation) to purchasing and protecting sensitive

lands; funding selective fishing

projects (such as nets that are

less likely to catch or harm

listed fish); funding projects at

hatcheries; and initiating many

important hydropower system

studies. (See the May 2002

Citizen Update for more information on 2001 accomplishments.)

Implementation challenges

Some significant challenges

still lie ahead for the region’s

fish recovery efforts. Among

issues flagged as “needing

resolution” by NMFS in its

findings report were:

RM&E responsibilities

Nine actions that call for

Research, Monitoring and

Evaluation (RM&E) projects,

including a fish population and

“environmental status” monitoring program, and studies addressing hatchery fish, habitat

Overall, NMFS is

satisfied that 176 of

199 required actions, or

88 percent, are moving

forward adequately or

are on track for future

implementation to meet

required objectives.
actions and fish use of the

Columbia River estuary and

plume, have slipped behind

schedule. Implementation of

RM&E measures is critical

because they provide the means

to evaluate biological performance and ultimately determine

whether the other actions have

been successful. (You need the

appropriate yardstick to measure something.) The implementation lag has occurred for three

reasons:

1. NMFS, the Action Agencies,

and other federal agencies

are still working together to

identify respective responsibilities for these particular

actions;

2. Some federal funds for these

actions are not yet available;

and

3. Some projects are most

appropriately funded through

a “solicitation for proposals”

planned later in 2002.

Hydropower system: VarQ

Variable flow flood control

(VarQ) can provide significant

additional water during the fish

passage season in years of

normal and below normal

runoff. Implementation of VarQ

was delayed at Libby Dam by

the need to prepare an environmental impact statement to

address potential adverse

impacts. If not implemented

before the 2003 passage season, NMFS is asking the Corps

to identify other actions to

compensate for the lost water

volume. VarQ was implemented

on schedule in 2001 at Hungry

Horse Dam following a determination that additional fish

passage water could be provided without significant adverse impacts.

Habitat: Long-term riparian

improvements

Efforts to secure long-term

or permanent protection of 100

miles of riparian buffers –

sensitive wetlands along

streams that may provide

habitat for listed fish – each

year could fall short. BPA is

stepping up coordination with

agricultural incentive programs

to put this measure back on

track.

Other federal agencies

working to implement the

Biological Opinion and All-H

Strategy in 2001 encountered

some difficulties of their own,

NMFS notes. Similar to the

RM&E issue above, lack of an

explicit allocation of responsibilities between the Action

Agencies and other federal

agencies delayed some activities. Lack of federal funding and

a delay in finalizing a key

ecosystem management program also postponed some

habitat improvements.

Continuing commitment

The agencies understand

they must continue to be vigilant in proceeding with the

scope and schedule of actions

called for in the Biological

Opinions.

NMFS, the Action Agencies,

and the other federal agencies

have pledged to continue working together to help resolve

impediments affecting the fish

recovery program and to support continued actions to stay

on track.

5
the basin. USFWS provided

funds and technical aid for

habitat restoration on private

lands, fish screens and other

passage improvements at water

diversions, and efforts to reduce

avian predation in the Columbia

River estuary. NMFS provided

technical aid to many federal

agencies on tributary flow and

passage issues and provided

guidance for subbasin and

estuary planning.

Dissolved gas and temperature

standards

EPA worked with states,

tribes and other partners to

establish Total Maximum Daily

Loads as a technical foundation

for dissolved gas and temperature water quality improvement

plans for the Columbia and

Snake rivers.

Actions to limit harvest

impacts

Fishing strategies and

assessments

In fiscal year 2001/2002,

USFWS worked closely with

tribes and other Columbia River

harvest managers to evaluate

the effects of fishing strategies

that benefit listed fish. USFWS

staff also worked closely with

other fishery managers to

develop and use harvest assessment tools to improve management.

Highlights of Fish Recovery Efforts by Other Federal Agencies in 2001

C olumbia River Basin

 fish recovery efforts

 kept a steady pace in

 this startup year for

implementing the basinwide

salmon recovery strategy.

Following are highlights of

actions taken by five federal

agencies:

• U.S. Forest Service (USFS)

• Bureau of Land Management

(BLM)

• U.S. Fish & Wildlife Service

(USFWS)

• Environmental Protection

Agency (EPA)

• Natural Resources Conservation Service (NRCS)

Highlights of 2001 recovery

actions taken by the three

federal Action Agencies are

covered in the May 2002 Citizen Update.

In general, actions taken in

2001 by these agencies addressed habitat and water

quality protection, and hatchery

and harvest management.

Guided by the recovery strategy

and other goals for protecting

resident fish, the agencies

worked together and with other

regional parties to complement

and build on each other’s efforts

whenever possible.

Actions to protect habitat and

water quality

Federal land improvements

Because federal land management agencies (BLM and

USFS) together manage about

60 percent of Columbia River

Basin habitat lands, their role in

protecting habitat is vital to the

recovery plan. In 2001, these

agencies focused on protecting

and maintaining habitat through

programs that address salmon,

steelhead, bull trout and sturgeon. Besides acquiring additional habitat through purchases

or land exchanges, the agencies, in consultation with NMFS

and USFWS, worked to restore

high quality habitat and reconnect spawning and rearing

habitat in several watersheds.

Restoration activities included

replacement and installation of

culverts, road improvements or

removal, and in-stream replacement of boulders and woody

debris.

Other tributary and estuary

habitat improvements

NRCS and its conservation

partners helped 4,200 farmers

and ranchers conserve their

soil, water and other natural

resources while protecting

water quality and enhancing

wildlife habitat on some 668,000

acres of private land throughout

6
Abundance-driven fishery plans

NMFS worked through

several forums to ensure that

harvest management remains

consistent with the All-H approach. Resulting fishery plans

were driven by the abundance

and status of affected natural

fish. NMFS also approved an

innovative selective fishery plan

for management and evaluation

of Willamette spring chinook

fisheries that will help recover

that species while allowing

greater access to hatcheryproduced fish.

Actions to improve hatchery

management

Hatchery and Genetic

Management Plans

USFWS and NMFS helped

create guidelines for developing

Hatchery and Genetic Management Plans. These provide a

standard approach for developing information about artificial

production programs, a vital

step in assessing their efficacy.

Safety Net Artificial Production

Program

In 2001, NMFS also worked

with USFWS and BPA to establish a Safety Net Artificial

Production Program to identify

and manage hatchery interventions where needed to address

rapidly declining populations.

Salmon Supplementation Study

USFWS participated in a

study in which hatchery-raised

Snake River fall chinook salmon

were released into the wild.

Through evaluation of marked

fish, the agency determined

differences in performance

between juveniles released

from three different sites. The

information collected will be

used to adjust future release

strategies and help accelerate

recovery of these listed fish.

Production facility reforms

In partnership with Columbia

Basin tribes, a special handmade feed was developed by

the USFWS to “recondition”

steelhead kelts (steelhead that

have spawned) in an effort to

increase post-spawning survival

of listed steelhead. At the Little

Salmon National Fish Hatchery,

the agency began rebuilding

rearing facilities to imitate a

more natural environment,

which is expected to improve

fish survival and hatchery

returns.

Actions to bolster research,

monitoring and evaluation

Results-based tracking

In 2001, NMFS continued to

work on a comprehensive

research, monitoring and evaluation program to provide for

results-based tracking and

reporting of implementation

actions. The first major pilot

study is planned for the John

Day basin in 2003.

Long-term planning

USFS and BLM collaboratively worked on developing

monitoring programs, data

management systems, watershed plans and more comprehensive restoration plans to

guide long-term improvements

on land under each agency’s

jurisdiction.

The tribes and states of

Oregon, Washington and Idaho

also pursued many planning and

on-the-ground projects to aid

fish recovery in 2001. While the

magnitude of benefits from

these initiatives cannot yet be

estimated, their cumulative

impact certainly improves

conditions for listed species.

State and tribal actions are

discussed in more detail in

NMFS’ 2002 findings report.

The full text of 2001 progress

reports by individual agencies is

posted on the following Web

site: http://www.salmonrecovery.gov/index.shtm.

7