Recovering and Sustaining
Pacific Northwest Salmon & Steelhead: Products of Touris

Figure 1:. Adult Chinook Salmon (U.S. Fish and Wildlife Service)

I. Identification

1. Issue:

Salmon and steelhead fish have evolved to be icons of the Pacific Northwest; they have symbolic and spiritual meaning for this geographical location. In addition, these fish also contribute economically to this region: [T]he 2001 salmon and steelhead sport fishing season brought in $1.9 billion to the Northwest” (Save Our Wild Salmon Coalition). These species’ absence would be a tremendous devastation to this region’s economy and cultural identity.

Policy planning and implementation is vital to ensuring that these fish populations do not disappear. Laws and regulations are now critical to these delicate fish populations because they are currently a part of the Endangered Species List. The steelhead became a part of the List on June 17, 1998; the Chum salmon became a part of the List on August 2, 1999; the Coho salmon became a part of the list on June 18, 1997; the Sockeye salmon became a part of the List on January 3, 1992; and the Chinook salmon became a part of the List on August 2, 1999 (U.S. Fish and Wildlife Service).

However, current U.S. federal policy poses an issue for tourism in the Pacific Northwest region of the United States. Stakeholders question the government’s policy in recovering and sustaining the salmon and steelhead populations. Contributing to the diminishing the fish populations of this region are hydroelectric dams. U.S. federal policy prescribes that a majority of hydroelectric dams are to remain in the Pacific Northwest. Hydroelectric dams contribute to destroying the quality and quantity of salmon and steelhead as they limit fishes’ stream movement. They also damage or kill fish due to the pressure of the turbines of the hydroelectric plants (Power Frontiers). The National Oceanic and Atmospheric Administration’s plan, called “Biological Plan,” under the Bush administration is aimed to impact the Pacific Northwest’s great products of salmon and steelhead in the Columbia and Snake River Basin. The “Biological Plan” does not include dam removal for this basin, which limits the salmon and steelhead population to prosper and run free (US Fed News). Without dam removal in this site, the NOAA’s Northwest’s salmon and steelhead recovery plan is questionably designed for proper long-term recovery of these endangered species.

2. Description:

The National Oceanic and Atmospheric Administration drafted a recovery of the Pacific Northwest’s fish population in 2000 in the Columbia and Snake River Basin. This plan was highly criticized by many stakeholders including, environmental groups and fishermen. In 2003, a federal judge ordered the NOAA Fisheries to redraft the plan. On September 9, 2004 a new draft of the “Biological Plan” was released. This draft, like previous ones, has not achieved successful implementation and appraisal by environmental groups and fishermen. In October 2004, 100 legislators led by Rep. Earl Blumenauer (D-Ore.) and Reps. Tom Petri (R-Wis.), Peter DeFazio (D-Ore.), Christopher Shays (R-Conn.), and Jim McDermott (D-Wash.) met with President Bush. These legislators attempted to persuade the President to alter his agenda for the Pacific Northwest’s restoration of its fish (US Fed News). These legislators expressed to the President their concern over the hydroelectric dams damaging the fish populations of the Pacific Northwest.

Figure 2. Map of Recovery Strategy; Source: Columbia Basin Salmon Recovery Strategy. http://www.salmonrecovery.gov/basin_recovery_map.shtml

3. Related Cases:

Pollard, Andi. Tourism in Nambia. April 2005.
Department of Tourism and Hospitality Management
The George Washington University

4. Author and Date:

Mary Perrin - April 2005.
Master of Tourism Administration
Department of Tourism and Hospitality Management
The George Washington University

II. Policy Impacts

5. Social:

The disappearance of salmon and steelhead would be devastating to the social identity of this region. The Pacific Northwest’s geographical character is uniquely defined by its ecosystem and topography that is the habitat for wildlife. The combination and interaction amongst the natural attributes of this region, such as the Columbia River and moist weather, and human activities, such as fishing, provide the Pacific Northwest with distinct character. States in the Pacific Northwest, such as Oregon, Idaho, and Washington have identities that rest upon the assets of the Columbia River and Snake River that fosters life for fish. The natural environment of the Pacific Northwest forms a distinct identity that is highly intertwined with its products of salmon and steelhead. These fish have intrinsic spiritual and sentimental to the individuals who inhabit this region, particularly the Native American tribes, and tourists who visit this region.

6. Environmental:

The Bush administration is pursuing the continued use of hydroelectric dams because of their ability to create a renewable source of energy. This energy is then converted into electricity in an environmentally sound method. Hydroelectric dams tap into the energy powered by the water currents. This energy is then converted into electricity and distributed. Hydroelectric dams provide an effective, inexpensive, and environmentally sound method of producing electricity (Power Frontiers).

But the trade-off for the inexpensive electricity is the depleted quantity and lessening of quality in the region’s wildlife. Sport fishing on the Columbia River is a thriving multibillion dollar industry yet it directly depends on the quantity and quality of fish available. The hydroelectric dams negatively affect the fish population in four major ways: (1.) Hydroelectric dams limit water moving downstream to the ocean, which limits the necessary water for fish to live; (2.) These dams are hazardous to the fish population because they force the water to become to warm and provide inadequate oxygen; (3.) The dams limit fish movement upstream to spawn; and (4.) The turbines of the hydroelectric plants may injure or kill the fish (Power Frontiers).

7. Economic:

This region and the fishery products of this region provide significant economic contributions to the recreation industry, which wields 3.5 billion dollars annually (Save Our Wild Salmon Coalition). This industry also accounts for more than 36,000 fishing jobs from California, Oregon, Washington, Alaska, and Idaho (US Fed News). In addition, this industry encompasses U.S. taxpayers spending $600 million a year on salmon recovery in the Pacific Northwest (Milstein, Michael and Michelle Cole).

8. Other: N/A

9. Suggested Interventions:

The Federal Action Agencies overseeing the Pacific Northwest fish recovery plan could focus on plans other than to ensure that the dams are not removed. The National Oceanic and Atmospheric Administration could focus time and monetary funds towards economic regulation. The NOAA could modify the supply and demand of fish in order to recover and sustain the fish populations. For example this administration could (1.) Control price of fish (via taxes) and wages for fisherman and (2.) Designate territories as “protected areas” that are to be undisturbed by human activity to allow fish populations to recover.

III. Legal Clusters

10. Discourse and Status/Policy Issue:

Implementation

The NOAA’s current Northwest Salmon Recovery Plan (as reported on October 2004 by the US Fed News) does not work towards the recovery of the fish population. The agenda of the plan only works to “ensure the bare survival of salmon” (US Fed News). Therefore, it will always be under the scrutiny by conservation groups, the Native American Tribes, and the Northwest Sport Fishing Industry. Like previous editions of the NOAA’s Northwest Salmon Recovery Plan, the October 2004 edition may be subjected to revision by the federal courts.

The Bureau of Reclamation is in charge of reviewing and choosing whether to implement the Federal Action Agencies’ November 2004 Updated Proposed Action (UPA). On January 12, 2005, the Regional Director for the Bureau of Reclamation: J. William McDonald indicated that the Bureau “will implement each component of the UPA that pertains to Reclamation with recognition that the adaptive management framework may require adjustments to the actions to meet survival improvements identified in the 2004 BiOp” (The Bureau of Reclamation, Columbia Basin Salmon Recovery Strategy). The UPA is composed of selected actions of the “Biological Opinion” that seek to ensure the recovery and sustainability of the fish populations.

As of March 2, 2005, the U.S. Army Corps of Engineers Bureau of Reclamation Bonneville Power Administration drafted the 2005-2007 Implementation Plan for the Updated Proposed Action.

11. Forum and Scope/Existing Policy Framework:

International:

The policy framework set forth by the NOAA is to affect the salmon and steelhead populations existing from southern California to the Canadian border (The Frontrunner). The international country of Canada is heavily involved in salmon and steelhead sustainability due to its proximity to the United States (Save Our Wild Salmon Coalition).

National:

The “Biological Opinion,” under the National Oceanic and Atmospheric Administration, provides the current framework for fish restoration and sustainability in the United States and Canada.

In addition to “Biological Opinion,” the Bonneville Power Administration based in Portland, Oregon heads the Basinwide Salmon Recovery Strategy to recover and sustain the fish populations of the Pacific Northwest. The goals of this strategy include the following:
(1) The action agencies (BPA, COE, BOR) implement the NMFS and FWS Biological Opinions.
(2) Continue the Federal Caucus
(3) Establish a Memorandum of Understanding Among Federal Agencies
(4) Continue the Regional Forum
(5) Establish a Habitat Team
(6) Coordinate Harvest and Hatchery Activities with Habitat and Hydropower Activities
(7) Coordinate with other Regional Entities
(8) Collaborate with Others on Science
(9) Initiate Recovery Planning
(10) Use Performance Standards
(11) Coordinate Federal Budgets
(12) Monitor and Evaluate Progress
(SalmonRecovery.gov)

Figure 3. Basinwide Salmon Recovery Strategy
(http://www.salmonrecovery.gov/strategy_implementation.shtml)

Regional

(1) The Salmon Planning Act (HR 1097)

This Act was re-introduced by Representatives Jim McDermott (D-Wa) and Tom Petri (R-Wi) in March 2003. This plan is considered a backup plan if federal governmental policies do not appropriately address the sustainability the issue of fish. This Act includes: (1) A scientific study by the National Academy of Sciences to analyze whether the removal of the dam in the Columbia and Snake River Basin will significantly recovery salmon and steelhead in this area, (2) Legal and Native American tribal regulation over rights concerning land, water, and products, and (3) Authority to the federal government for removal of the four Snake River dams if this action would restore the fish populations (Save Our Wild Salmon Coalition).

Local

Save Our Wild Salmon posts the following suggests for locals to do to save the fish population on its web site:

• Host a letter writing campaign in your retail shop.
• Donate design and printing services for a sign, mailing or paid advertisement.
• Set up in-store displays in your shop and/or have information at the cash register.
• Host a phone bank in your office after hours to reach more salmon volunteers.
• Take a politician fishing or rafting to introduce him/her to salmon and river
issues.
• Donate merchandise for a fundraising auction.
• Financially sponsor an event.
(Save Our Wild Salmon Coalition)

12. Decision Breadth/Stakeholders/Policy Actors:

The decision of a revised salmon and steelhead recovery plan remains at the discretion of the federal government. The September 2004 draft of “Biological Opinion” may under scrutiny by the federal courts.

The main stakeholders include the United States government, citizens of the Pacific Northwest, conservation groups, the Native American tribes, federal taxpayers, the Army Corps of Engineers who build dams, and the Northwest Sport Fishing Industry Association. The Action Agencies that govern policy making over the fish populations and the hydroelectric dams include the Bureau of Reclamation, U.S. Army Corps of Engineers (Corps), and the Bonneville Power Administration (BPA).

13. Legal Standing/Legal Regulatory Framework/Suggested Policy Intervention:

The courts intervened in 2003 with the Federal Action Agencies and ordered a revision of “Biological Opinion.” As of March 2, 2005, the U.S. Army Corps of Engineers Bureau of Reclamation Bonneville Power Administration drafted the 2005-2007 Implementation Plan for the Updated Proposed Action.

Legal liability and Risk Management
The federal government has legal liability to implement sound policy that takes into consideration the needs and wants of the Pacific Northwest citizens, particularly the tribes of this region. Federal legal and tribal treaty regulation are intertwined in this issue over dam removal in the Columbia and Snake River Basin. Idaho farmers, fish advocates, and American Indian Tribes all have stake in the Snake River. In Portland, Oregon, Congress recently provided an agreement that works to increase the fish, quality of water, and recognizes the tribes’ water rights (Henry). Ownership over the fish and the fate of fish has and remains an issue between the state and tribes. For example, in 1974, U.S. District Judge George Boldt ruled that Washington tribes have right to half of the harvestable fish in the state (Henry).

IV. Trade Clusters

14. Type of Measure:

The Updated Proposed Action of Biological Opinion includes the following measures to improve and sustain the quantity and quality of salmon and steelhead populations: “(1) Continue adult fish passage, (2) Improve fish passage, (3) Continue and enhance spill for juvenile fish passage, (4) Continue reservoir operations and river flows to benefit migrating fish, (5) Modify juvenile fish transportation to improve survival, (6) Expand predator control to manage impacts to juvenile fish, (7) Improve tributary spawning and rearing habitat, (8) Improve estuary habitat, (9) Implement hatchery actions, (10) Pursue harvest opportunities, (11) Continue to support regional research, monitoring and evaluation, (12) Follow through on actions taken under the 2000 FCRPS BiOp.” These measures work to regulate the fish populations, upon which the sport fishing industry and identity of the Pacific Northwest is dependent.
In measuring the quantity and quality of fish, individual fishing quota (IFQ) and total allowable catch (TAC) contribute to this measurement. In February 2004, the United States General Accounting generated a report for congressional requesters, titled “Individual Fishing Quotas: Methods for Community Protection and New Entry Require Periodic Evaluation.” This report provides methods for restricting fishing by a issuing a limited number of fishing licenses and implementing fishing quotas.

15. Relation of Trade Measure to Environmental/Tourism Impact:

a. Directly Related to Product:

Yes, the measures are directly related to the protection of the habitat that fosters life for fish. The protection of the fish habitat directly affects the quantity and quality of this region’s salmon and steelhead and this region’s overall tourism recreational product.

b. Indirectly Related to Product:

No.

c. Not Related to Product:

No.

d. Related to Process:

Yes, the salmon and steelhead populations are related to the process in which the environment is managed.

16. Trade Product Identification/Trade and Services:

The trade product is salmon and steelhead and the sport fishing tourism associated with its exploitation.

17. Economic Data

The economic cost for implementing “Biological Opinion” is estimated at $600 million annually according to The Public Power Council: Fish and Wildlife. “[T]he 2001 salmon and steelhead sport fishing season brought in $1.9 billion to the Northwest,” and “[A] fully restored fishery could bring in $5.5 billion to Oregon, Washington, and Idaho with sport fishing alone” (Save Our Wild Salmon Coalition). Whereas the annual cost of implementing “Biological Opinion” has a finite period, the annual economic profits from the sport fishing industry could perpetually be generated.

18. Impact of Trade Restriction:

Limiting fishing and managing visitors to sensitive areas along the rivers will increase and sustain the overall population of the salmon and steelhead fish. Conversely, a continual increase in sport fishing and poor regulation of the fish quotas will severely diminish the fish populations and damage the ecosystem.

19. Industry Sector:

Commercial and sport fishing and recreational tourism.

20. Exporters and Importers:

Exporters: Sport fisherman and recreational travelers that are non-residents of the states representing the Pacific Northwest.

Importers: the domestic tourism supply chains and services of the Pacific Northwest states that cater to the sport fishing and recreational industry by providing goods and services.

V. Macro/Environment Clusters/Tourism Policy Clusters

21. Environmental Problem Type/ Environmental Aspects:

Pros and cons exist for the continued use of hydroelectric dams.

Pros: The Bush administration is pursuing the continued use of hydroelectric dams because of their ability to create a renewable source of energy. This energy is converted into electricity in an environmentally sound method. Hydroelectric dams tap into the energy powered by water currents. This energy is then converted into electricity through dams. Dams provide an effective, inexpensive, and environmentally sound method of producing electricity (Power Frontiers). The U.S. Environmental Protection Agency supports the use of hydroelectric dams, which aim to protect water as a natural resource while using water as a renewable source of energy. The U.S. Clean Water Act of 1970, the Water Pollution Control Act of 1972, and the Clean Water Act amendments of 1977 include rules and regulation to reduce “specific toxic or man-made pollutants” and encourage efficient and environmentally sound uses of the natural environment.

Cons: The hydroelectric dams negatively affect the fish population in four major ways: (1.) Hydroelectric dams limit water moving downstream to the ocean, which limits the necessary water for fish to live; (2.) These dams are hazardous to the fish population because they force the water to become to warm and provide inadequate oxygen; (3.) The dams limit fish movement upstream to spawn; and (4.) The turbines of the hydroelectric plants may injure or kill the fish (Power Frontiers).

22. Resource Impact and Effect:

If hydroelectric dams continue to exist in the Columbia and Snake River Basin, the quality and quantity of salmon and steelhead will decline. The Pacific Northwest’s cultural identity with fish and the commercial and sport fishing industry will also decline.

23. Urgency and Lifetime/Urgency and Policy Review:

Urgent issue: Short-term neglect to this issue has irreversible long-term damage to the salmon and steelhead populations as well as the Pacific Northwest

24. Substitutes/Alternative Policies:

Alternative policy framework could combat the depletion of fish. Policy framework needs to be established and implemented that strives to recovery the fish population rather than policy framework that only ensures that the fish populations will no longer be in a precarious environment. (See sections on (9.) “Suggested Interventions” and (30.) “Recommendations” for alternative policies.)

VI. Other Factors

25. Culture:

Tourism policy and planning is vital because to overuse or abuse the natural resources of a particular area would be to obliterate the territory’s identity and assets. This would be detrimental not only to the physical landscape of the area but also to peoples’ sense of belonging to this unique region. People shape the physical existence of a geographical location. A given area’s identity is directly tied to the knowledge, attitudes, and actions of individuals associating with the Pacific Northwest. Geographical locations capture, “Senses of belonging [which] are deeply rooted in emotions, memory and imagery: in mental categories” (Sorlin) that people associate with particular regions. For the Pacific Northwest, salmon represents more than a source of economic growth for this region; salmon holds symbolic and spiritual belonging for the people who associate with this location.

26. Trans-Boundary Issues:

Trans-boundary issues exist between the United States and Canada. The policy framework set forth by the NOAA is to affect the salmon and steelhead populations existing from southern California to the Canadian border (The Frontrunner). The international country of Canada is heavily involved in salmon and steelhead sustainability due to its proximity to the United States (Save Our Wild Salmon Coalition).

27. Rights:

Right disputes arise over regulation and policy implementation over the Pacific Northwest’s fish. The right disputes include the major stakeholders: Native Americans vs. the federal government vs. the fishery industry

28. Relevant Literature

Dredge, Dianne and John Jenkins (November 2003), “Destination Place Identity and Regional Tourism Policy,” Tourism Geographies. London. Vol. 5, Iss. 4; pp. 383.

Sorlin, Sverker (October 1999), “The Articulation of Territory: Landscape and the Constitution of Regional and National Identity,” Norwegian Journal of Geography. Oxfordshire, United Kingdom. Vol. 53, Iss. 2/3; pp. 103.

Save Our Wild Salmon Coalition. Web site: http://www.wildsalmon.org. (2005).

The Public Power Council: Fish and Wildlife. Web site: http://www.ppcpdx.org/Fish/main2.html. (Updated April 11, 2005).

Power Frontiers. Web site: http://www.powerfrontiers.com/hydropower.html. DeMorgan Industries. (2003).

“The Endangered Species Act of 1973.” U.S. Fish and Wildlife Service. Web site: http://endangered.fws.gov/esa.html. (Updated on October 27, 2004).

Idaho National Engineering and Environmental Laboratory. Web site: http://hydropower.inel.gov/ . Bechtel BWXT Idaho, LLC. (Last updated Monday, April 19, 2004).

The National Oceanic and Atmospheric Administration: Northwest Salmon Recovery Planning. U.S. Department of Commerce. Web site: http://www.nmfs.noaa.gov/trt/index.html. (Updated April 11, 2005).

Grossman, Elizabeth. “Watershed Restoring the Elwha River Could Change Public Thinking About America’s Rivers,” (December 12, 2004). The Seattle Post-Intelligencer. Seattle.

Henry, Natalie M. “Snake River accord reached on Tribal use, Salmon Restoration Programs,” (November 23, 2004). Greenwire. Environment and Energy Publishing Natural Resources Vol. 10 No. 9.

Kawada, Eijiro. “Fishing Only An Echo of the Past; Far Fewer Recreational Anglers and Commercial Operations on the Waters,” (February 17, 2004). The News Tribune. Tacoma, Washington: The News Tribune.

Milstein, Michael and Michelle Cole. “A Q&A with President George W. Bush and Senator John Kerry What About the Environment? The Oregonian Asks the Candidates Where They Stand,” (October 28, 2004). The Oregonian. Sec. Local Stories, Pg. A01.
”Lawmakers Urge Redraft of Salmon Recovery Plan,” (October 12, 2004). US Fed News. Washington: HT Media Ltd.
“Administration Supports Cutting Back Protection of Western Salmon Stream,” (December 1, 2004). The Frontrunner. Washington: Bulletin News Network, Inc.

Decision Document concerning the Final Updated Proposal Action and NOAA Fisheries’ November 30, 2004, Biological Opinion Consultation on Remand for Operation for the Federal Columbia River Power System including 19 Bureau of Reclamation Projects in the Columbia Basin,” (November 30, 2004). Revised and reissued pursuant to court order, NWF vs. NMFS, Civ. Nov. CV 01-640-RE (D. Oregon). U.S. Department of the Interior Bureau of Reclamation Pacific Northwest Region. Portland, Oregon: Bonneville Power Administration. Web site: http://www.salmonrecovery.gov/Implementation/Reclamation_Decision_
Document.pdf
(Web page content updated on September 16, 2003).
“The Draft Implementation Plan (Draft IP) for the 2005-2007 Updated Proposed Action,” (March 2, 2005). U.S. Army Corps of Engineers Bureau of Reclamation Bonneville Power Administration. SalmonRecovery.gov.
Web page: http://www.salmonrecovery.gov/Implementation/2005_2007_
implementation_plan_for_updated_proposed_action.pdf

VII. Conclusion

29. Policy Implications:

As of March 2, 2005, the U.S. Army Corps of Engineers Bureau of Reclamation Bonneville Power Administration drafted the 2005-2007 Implementation Plan for the Updated Proposed Action. This plan is composed of “planned actions and expected outcomes to avoid jeopardy to Columbia Basin salmonids listed or proposed under the ESA (13 species of salmon and steelhead) and adverse modification of designated critical habitat.” The goal of the Updated Proposed Action is not a plan of recovering the steelhead and salmon populations; rather it is a plan to ensure that no further destruction of this population occurs. Such policy probably will not sustain the salmon and steelhead because it is preventive and neglects the recovery of the fish populations that have already been destroyed.

This policy is significant to the tourism of this region, as a unique geographical location to visit. Pacific Northwest salmon and steelhead are currently listed as an endangered species, which makes the not only these fishes' future questionable but also the future of the Pacific Northwest’s cultural identity. Salmon and steelhead have evolved to become the icon of the Pacific Northwest; thus, depletion of this region’s fish would cause decline of the Pacific Northwest’s identity. The uniqueness of this region’s identity would harm this geographical area as a place to visit and the local’s sense of belonging. This case is significant to the commercial and sport fishing industry, which depends on the quantity and quality of fish.

30. Recommendations:

Additional backup plans for the recovery of steelhead and salmon in this region should be established, like the Salmon Planning Act (HR 1097), a bipartisan bill. This bill orders thorough examination of the costs versus the benefits of the lower Snake River dam removal. This bipartisan bill represents the state of Washington’s proactive approach to recovering and sustaining the fish populations. The state of Washington is not completely dependent upon the federal government to be effective in aiding in the salmon and steelhead populations.

Also, Pacific Northwest businesses’ success, which is contingent upon steelhead and salmon, should take a proactive approach to recovering and sustaining the fish populations. Businesses, such as Patagonia, Teva, and Smartwood all sell outdoor wear for fisherman, and they all promote the Save Our Salmon Coalition (Save Our Salmon Coalition).

As of now, the federal, state, and local levels do not have programs that work to incorporate all stakeholders’ wants and needs. Each level has its own agenda for the Pacific Northwest’s natural environment. In order to best recover and sustain the steelhead and salmon populations, the federal, state, and local levels of policy planning and implementation need to collaborate.