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1994 Columbia River Basin Fish and Wildlife Program
Council document 94-55
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 Fish and wildlife    Fish and Wildlife Program 

< Section 7 table of contents

7.1  Ensure Biodiversity

Scientists and natural resource managers have become increasingly concerned about the need to manage fish and wildlife in a way that recognizes the importance of a diverse and productive ecosystem. Biodiversity is the variety of and variability in living organisms, with respect to genetics, life history, behavior and other fundamental characteristics. Biodiversity is important at the levels of landscapes, ecosystems, species and populations. There is increasing recognition that conserving biodiversity is key to the sustainability of natural resources, including fish and wildlife. Conserving biodiversity means fostering human development activities that protect the integrity of ecosystems, thereby sustaining natural resources.

7.1A  Evaluation of Carrying Capacity

Implementing an ecosystem approach requires knowledge of the Columbia River ecosystem. The Council therefore calls on Bonneville and federal agencies to evaluate salmon survival in the Columbia River, its estuary and in the near-shore ocean. This analysis should increase understanding of the ecology, carrying capacity and limiting factors that influence salmon survival under current conditions.

Bonneville

7.1A.1  Fund an evaluation of tributary, mainstem (including reservoirs), estuary, plume, near-shore ocean and marine salmon survival, ecology, carrying capacity and limiting factors. Include analysis of competition between non-native species and anadromous salmonids and negative competitive interactions resulting from hatchery management practices. As part of the evaluation, estimate the current salmon carrying capacity of the Columbia River mainstem, tributaries, estuary, plume and near-shore ocean for juvenile fish, using primarily existing data. The analysis should include an evaluation of the effects of the alteration and timing of the ocean plume as caused by the construction and operation of the hydroelectric system. The evaluation should identify residency time of juvenile salmonids, and their level of smoltification. Management measures to protect and improve estuary habitat as well as increase the productivity of the estuary should also be identified. The evaluation should make recommendations for management responses to fluctuating estuary and ocean conditions, such as adjusting total numbers of releases to take such conditions into account. The evaluation should include analysis of existing data, identification of critical uncertainties and research needs, and estimates of incremental gains in survival from improvements in each area. The analysis should also propose a monitoring program to identify optimal timing for residency in the estuary and the near-shore environment (coordinate with measure 7.2D.2. under Improved Propagation at Existing Facilities).

7.1A.2  Fund development of a study plan based on the critical uncertainties and research needs identified in the above evaluation, which should be presented to the Council by December 1995. The study plan should include provisions for federal funding or cost sharing of the study. Upon approval by the Council, Bonneville and/or other parties identified by the Council should fund the proposed study.

States of Oregon and Washington and Federal Agencies

7.1A.3  Based on existing information, identify management measures that can be implemented immediately to provide better protection and improve estuarine productivity. Include identification of seasonal water volume needs in the estuary for fish and wildlife. Report to the Council by June 30, 1995, on opportunities, needed actions, time frame and funding sources to implement recommendations.

7.1A.4  Explore expanding the scope of the Columbia River Estuary Bi-State Study to include all of the Columbia River Basin. This study could be an effective means of addressing comprehensively all interrelated water quality and quantity aspects of the basin. Also, explore the feasibility of the Columbia Basin participating in the Environmental Protection agency's national ?estuaries of significance? program.

Council

7.1A.5  Begin rulemaking in December 1995 to identify measures aimed at improving estuary conditions and survival for salmon and steelhead. Review results of the Columbia River Estuary Bi-State Study as well as other pertinent information to develop these measures.

7.1B  Conserve Genetic Diversity

Council Genetics Team

7.1B.1  Review current efforts for conserving genetic diversity within and among Columbia River Basin salmon and steelhead stocks. Report to the Council by December 31, 1995. The review should provide recommendations for how to achieve sustainable increases in salmon and steelhead populations. Specifically, recommend an approach to identify provisional genetic conservation units for production and harvest, and rules for taking action with regard to those conservation units. Coordinate with measure 7.1C.1. The team also should assist in the development of performance standards for conserving genetic diversity of natural, supplemented and hatchery stocks.

7.1B.2  Participate in the coordinated habitat and production process described in Section 7.0A.1. Develop technical proposals for improved conservation of biodiversity, including identification of genetic conservation refuges, alternative approaches to artificial production and any other appropriate proposals.

7.1C  Collection of Population Status, Life History and Other Data on Wild and Naturally Spawning Populations

To meet the program goal, base-line information that will improve management and conservation of wild and naturally spawning populations is needed. High priority populations should be identified immediately so that these can be monitored as soon as possible. An extensive initial data collection effort is needed so that provisional population units in the basin can be identified. And long-term monitoring strategies need to be developed. The following actions should be coordinated with development of rebuilding schedules called for in Section 4. Utilize the Habitat Selection Criteria developed by the coordinated habitat and production process as part of the criteria for collection of biological data.

Bonneville

7.1C.1  Fund a study to: 1) determine what level of differentiation is necessary to identify stock boundaries or genetic differences, and 2) determine what attributes need to be measured. Obtain peer review of the study approach and the results. Report study progress periodically to the Council. The study should begin no later than February 1, 1995, and conclude by June 1995.

7.1C.2  Fund the design of an extensive one- or two-year study to identify wild and naturally spawning salmon and steelhead populations in the Columbia River Basin based on genetic, morphological, life history and any other relevant information. Recommend possible indicator populations for monitoring. Consult with appropriate specialists in designing the project. Take into consideration the findings from measure 7.1C.1 and coordinate with the Genetics Team (see measure 7.1B.1). Bring alternative study designs to the Council by December 31, 1992. Upon Council approval, fund the study.

Fishery Managers in Consultation with National Marine Fisheries Service and Other Technical Experts

7.1C.3  Develop and submit to the Council a proposed program to collect information on wild and naturally spawning populations, including index populations, by June 30, 1996. This should be consistent and coordinated with population monitoring specified as part of the rebuilding schedules in Section 4. The long-term objective of the program is to collect information related to the sustainability of wild and naturally spawning salmon and steelhead populations, including risk-containment monitoring of impacts of management action or inaction. The program should include proposals to accomplish the following elements:

7.1C.4  Coordinate with the activities described above and fund a project to scope program costs, duration, feasibility and relative benefits for levels of monitoring ranging from complete monitoring of all wild and naturally spawning salmon and steelhead populations, to monitoring of index populations only. Report to the Council with alternative program approaches by September 30, 1996.

7.1D  Wild and Naturally Spawning Population Policy

To conserve, manage and rebuild the basin's remaining wild and naturally spawning populations, a policy giving such populations explicit priority is needed.

Oregon, Idaho and Washington and Indian Tribes

7.1D.1  By March 31, 1995, develop and review with the Council a proposed wild and naturally spawning population conservation policy consistent with the Council's overall program goal and intended to protect genetic diversity, population identity, long-term fitness and evolutionary capacity. The policy should address habitat protection, restoration, management and improvement; water use; harvest management; releases of non-native fish; interactions between resident and anadromous fish; use of wild and naturally spawning populations as brood stock for artificial production; risk assessment and containment; and monitoring and evaluation. Consider recovery plans and other products developed under the Endangered Species Act for Columbia River Basin species in development of this policy.

7.1D.2  By June 30, 1995, in consultation with appropriate specialists in genetics and state, federal and tribal land and water managers, establish a comprehensive wild and naturally spawning salmon population conservation program. Provide for Council and public review. The program should consider for inclusion, but not be limited to, the following:

7.1E  Population Vulnerability Analyses

Bonneville

7.1E.1  Fund a review of existing procedures for conducting population vulnerability analyses for depleted salmon and steelhead populations. The procedures should be used to determine the status of populations and facilitate the selection of options for recovering them. Coordinate with appropriate fishery managers, specialists in genetics and the regional analytical methods coordination process (see Section 3). Report findings and recommendations for development and application to the Council by June 30, 1995.

7.1F  Systemwide and Cumulative Impacts of Existing and Proposed Artificial Production Projects

Bonneville

7.1F.1  Design a study to evaluate the cumulative and systemwide impacts of existing and proposed artificial production activities on the ecology, genetics and other important characteristics of Columbia River Basin anadromous and resident fish. Coordinate this study with the genetic impact assessment of Columbia River Basin hatcheries called for in Section 7.2A.2. Report to the Council by December 31, 1995. Upon Council approval, fund the study.

7.1F.2  Fund a study to develop a method to be used by project proposers and implementers for assessing systemwide and cumulative impacts of proposed new artificial production projects. The method should take into account impacts of ongoing artificial production programs as identified above. The method should help meet requirements of the National Environmental Policy Act and the Endangered Species Act. Report to the Council by June 1996.

Fishery Managers

7.1F.3  In addition to existing methods for evaluating proposed artificial production projects (for example, Regional Assessment of Supplementation Project and Chapter III.C of the Integrated System Plan), use the method for assessing systemwide and cumulative impacts when available (see 7.1F.2).

7.1G  Adjust Total Number of Hatchery Fish Released to Stay Within Basin Carrying Capacity

The number of hatchery fish released into the Columbia River has steadily increased since hatchery production began in the late 1800s. Between 170 million and 200 million hatchery fish are released into the Columbia River Basin system annually. However, the capacity of the Columbia River Basin to support young fish has decreased during this time. Some scientists have suggested that the number of fish released may exceed the capacity of the present-day river, estuary and ocean to support their growth and survival to adulthood. Exceeding system carrying capacity may be partly responsible for decreasing survival of hatchery and wild and naturally spawning stocks.

Fishery Managers

7.1G.1  Until the carrying capacity preliminary evaluation in Section 7.1A.1 is complete (December 1995), take precautions to not exceed carrying capacity for juvenile salmonids through operations of Columbia River Basin hatcheries. Report to the Council by December 31, 1995, on the precautionary measures that will be put in place.

7.1H  Reprogramming of Existing Hatchery Stocks and Facilities

The Council acknowledges the commitment of parties to U.S. v. Oregon to use the framework of the Columbia River Fish Management Plan to rebuild upriver runs through production planning and the commitment of the parties to make recommendations for actions by June 1995. The Council further recognizes that Congress has instructed the U.S. Fish and Wildlife Service and the National Marine Fisheries Service to prepare plans and implement pilot programs designed to assist in rebuilding fish runs above Bonneville Dam and to report to Congress on such activities within 120 days of enactment of those agencies? appropriations.

Fishery Managers

7.1H.1  To coordinate with the foregoing measures, the Council calls on the fishery managers to:

Council

7.1H.2  Review a comprehensive plan developed by the fish and wildlife agencies and tribes for reprogramming lower river hatcheries. Where current knowledge is sufficient, certain stocks may be moved to particular upriver streams. Initial efforts shall focus on the needs of upriver stocks. The fish and wildlife agencies and the tribes will cooperate in this effort.

Bonneville

7.1H.3  After Council review of the reprogramming plan developed by the fish and wildlife agencies and Indian tribes, provide funds to transfer a portion of the fish from existing lower Columbia River hatcheries to release sites in the upper Columbia River system to assist in restoring naturally spawning stocks, as provided in that plan. The Mitchell Act and John Day hatcheries were provided to mitigate fishery losses that result from the federal development of the Columbia River Basin for hydropower and other purposes (such as irrigation and navigation) for which these projects were authorized. Reprogramming hatchery operations by developing new release strategies is intended to help rebuild upriver runs and improve tribal fisheries. The Council strongly supports restoration of naturally spawning upriver stocks, but further consultation with the fish and wildlife agencies and tribes is required to determine a final release plan.

7.1I  Biodiversity Institute

All Interested Regional Entities

7.1I.1  Cooperatively fund a feasibility study for a Pacific Northwest biodiversity institute. The institute would address native and resident salmonids, their habitat and ecosystems at stream, watershed and landscape levels. The purpose of the institute would be to assist in developing research and monitoring programs, provide scientific peer review, provide scientific expertise for regional planning and conduct research. Upon Council approval, fund project design, including cost sharing.

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