Opinion ID: 6493113
Heading Depth: 3
Heading Rank: 1

Heading: The Commission’s Analysis Regarding Instream Use Is Incomplete.

Text: The Commission explained its reasoning in the FOF/COL D & 0 section titled “The Commission’s Analysis and Conclusions.” That section of analysis shows a clear emphasis placed on the potential to restore amphi-dromous species in the streams. This was a main area of controversy in the hearing; the parties presented the Commission with several expert witnesses, all promoting different opinions on the issue. The term “amphidromous” describes species of fish that undergo regular, obligatory migration between fresh water and the sea at some stage in their life cycle other than the breeding period. Native Hawaiian am-phidromous species exhibit “freshwater am-phidromy,” where spawning takes place in fresh water, and the newly hatched larvae are swept into the sea by stream currents. While in the sea, the larvae undergo development as zooplankton before returning to fresh water to grow to maturity. The Commission found that these species suffer in Ná Wai ‘Ehá due to the disruption of natural flow caused by the offstream water diversions; the diversions degrade or destroy habitat, diminish food sources, diminish larval drift by capturing eggs and larvae, and impair flows necessary to transport larvae to the ocean. The Commission also found that discharge of sufficient duration and volume is necessary to attract and accommodate upstream migration of post-larval fish, mollusks, and crustaceans; there is a direct correlation between stream volume and recruitment, such that increased streamflow correlates with increased recruitment at the stream mouth. Dr. Mark Eric Benbow, an Assistant Professor at Michigan State University, testified on behalf of Hui/MTF as an expert in aquatic biology, ecology, and the Central Maui streams. Dr. Benbow testified that the am-phidromous life cycle requires continuous mauka-to-makai flow, though he acknowledged that he did not know the precise volume and duration necessary to sustain the species. Dr. Benbow reached his opinions after conducting multi-year studies of Central Maui streams in which he found that the largest migrations of species occur in streams with minimal or no diversions, while the greatest reductions in recruitment during drought occur in diverted streams. Dr. Ben-bow made two specific recommendations to the Commission: first, he recommended that the Commission require sufficient flow levels to increase the quantity and quality of habitat in order to have a functioning reproduction population of organisms; second, he recommended maintaining continuous mauka-to-makai flow in Ná Wai ‘Ehá. Dr. Benbow testified that, without additional studies, he cannot recommend maintaining the streams at less than 75 percent of their median flow. As the Commission found, however, Ben-bow’s 75-percent figure was an “informed guess,” and the precise volume and duration of streamflow needed to sustain the life cycle of amphidromous organisms is not known. John Ford, Program Director and Office Lead for SWCA Environmental Consultants, testified on behalf of HC & S as an expert in aquatic biology, with specific emphasis on native species in Hawaiian streams. Ford presented a different account of the importance of mauka-to-makai flow for amphidro-mous species. Ford distinguished “ecological connectivity” from “physical connectivity”; the former is the term for streamflows sufficient to allow the normal distribution of a species within an entire watershed, the latter is the term for continuous flow from a specific stream’s headwaters to its mouth. Ford noted that there are naturally interrupted and intermittent streams in Hawai'i with am-phidromous organism populations, and suggested that amphidromous species therefore may not require the continuous physical connectivity of each stream to sustain their population. HC & S retained Ford’s consulting company, SWCA, to evaluate amphidromous species in Ná Wai ‘Ehá. In 2007 and early 2008, SWCA performed a series of larval drift sampling to evaluate the reproduction of am-phidromous species; this survey lasted one week in total, so the Commission found it was “just a snapshot” and could not support “broad extrapolations over time” or “to other streams.” SWCA observed that Waihe'e River was the only stream in Ná Wai ‘Ehá with significant reproductive populations of native amphidromous species. SWCA also observed amphidromous species in Waikapü and ‘lao Streams, which may be evidence of ecological connectivity as those streams do not have physical connectivity to the sea except during prolonged intense flooding events. There may be another explanation, however, as Dr. Benbow testified that he and Division of Aquatic Resources biologist Skippy Hau have planted specimens of amphidro-mous species above the diversions of those streams. SWCA concluded that ecological connectivity exists under diverted conditions in the Waihe'e River and Waiehu Stream. Ford opined that the addition of flow to Waihe'e River and Waiehu Stream would be the most beneficial for increasing populations of native amphidromous species in Ná Wai ‘Ehá. With regard to Tao Stream, SWCA’s final conclusion was that the channelization “is the primary factor” impeding recruitment of amphidromous species. SWCA also found no definitive evidence that Waikapü Stream ever flowed continuously from mauka to ma-kai. The Commission’s Final FOF/COL D & O accepted Ford’s view of the streams with regard to amphidromous species. As the Commission explained in its final analysis section, it concluded that the restorative potentials are highest for Waihe'e River and Waiehu Stream. Tao Stream can be restored to enhance recruitment and increase stream life, but its reproductive potential is severely limited because of extensive channelization in the 2.5 miles immediately above its mouth. Waikapu Stream likely has minimal to no reproductive potential, because there probably was no pre-diversion continuous flow to the mouth, and even if there had been continuous flow, Kealia Pond and the delta below most likely inhibited recruitment. Hui/MTF argues that the Commission’s treatment of Tao and Waikapü Streams is not supported by the record and disregards all instream uses other than amphidromous species. In setting the IIFS, the Commission was charged with weighing “present or potential instream values.” HRS § 174C-71(2)(D). The water code contains a definition of instream uses, as well as an illustrative list of examples. It provides: “Instream use” means beneficial uses of stream water for significant purposes which are located in the stream and which are achieved by leaving the water in the stream. Instream uses include, but are not limited to: (1) Maintenance of fish and wildlife habitats; (2) Outdoor recreational activities; (3) Maintenance of ecosystems such as estuaries, wetlands, and stream vegetation; (4) Aesthetic values such as waterfalls and scenic waterways; (5) Navigation; (6) Instream hydropower generation; (7) Maintenance of water quality; (8) The conveyance of irrigation and domestic water supplies to downstream points of diversion; and (9) The protection of traditional and customary Hawaiian rights. HRS § 174C-3. As Hui/MTF shows, the record contains substantial evidence that establishing mauka-to-makai flow in all of the streams of Ná Wai ‘Ehá would support the public interest by fostering many of the statutorily-designated instream uses. Hui/MTF argues that the Commission focused on am-phidromous species, a subset of parenthesis (1) in the statute, and disregarded evidence supporting the other instream uses. HC & S replies that the Commission is not required to restore streamflow, or even to establish an IIFS, for each stream. The water code requires the Commission to establish IIFS in some instances; as the code provides, the Commission “shall” set an IIFS “in order to protect the public interest”. HRS § 174C-71(2)(A). Accordingly, in resolving the petition to amend the IIFS for Ná Wai ‘Ehá, the Commission was not precluded from retaining the existing IIFS in some or all of the streams, had it concluded that the public interest was sufficiently protected by the existing IIFS. In undertaking a close review of the Commission’s decision, it is apparent that the decision focuses on the flow standards as they relate to amphidromous species, and justifies the decision not to restore water to Tao and Waikapü Streams due to the conclusion that those streams show limited “reproductive potential” for amphidromous species. HC & S, the Commission, and WWC draw the court’s attention to the evidence in the record, especially the SWCA evaluation reviewed supra, that supports the Commission’s conclusion. However, Hui/MTF’s point of error does not merely contend that the Commission’s decision is not supported by the record; it also alleges that the Commission erred in disregarding the evidence of other instream uses. In Waiáhole I, this court held that where “the record demonstrates considerable conflict or uncertainty in the evidence, the agency must articulate its factual analysis with reasonable clarity, giving some reason for discounting the evidence rejected.” Waiāhole I, 94 Hawai'i at 168-64, 9 P.3d at 475-76. In its FOF/COL D & 0, the Commission does not explain its focus on amphidromous species above the evidence of other instream uses. Even if the Tao and Waikapü Streams may not support amphi-dromous species, evidence that they can support other instream uses must be weighed against noninstream uses, as required by HRS § 174C-71(2)(D). The Commission erred in not considering this evidence; on remand, the Commission must undertake and articulate this analysis. Waiāhole I, 94 Hawai'i at 158, 9 P.3d at 470 (remanding where the Commission “made invalid, inadequate, or incomplete findings.”) (citation).