Introduction

Oregon's Conservation Plan is designed to restore salmon to a sustainable level at which they can again be a part of people's lives. The Conservation Plan is being developed initially with an emphasis on coho salmon in coastal river basins, but it will expand to include all anadromous salmonids throughout the state. While the plan is focused on salmon, it also will help to conserve and restore functional elements of ecosystems that support fish, wildlife, and people. No state has ever attempted such a comprehensive program.

The plan consists of four essential elements. All four of these elements are unprecedented in scope. The elements are:

Coordinated agency programs.
Community based action.
Monitoring.
Appropriate corrective measures.

Coordinated agency programs. Many state and federal agencies administer laws, policies, and management programs that have an impact on natural resources, including salmon. Some prominent examples include ODFW, ODF, DSL, DEQ, WRD, ODA, ODOT, DLCD, USFS, USBLM, USEPA, USACE, and NOAA. These agencies are responsible for activities that include fishery harvest management, production of hatchery fish, and an extremely wide variety of habitat protection, alteration, and restoration activities. Previously, each of these agencies conducted its business independently. Salmon, a species whose life cycle crosses the physical

and jurisdictional boundaries of all of these agencies, suffered. Salmon suffered because they were affected by the actions of all the agencies, but no single agency was responsible for comprehensive, life-cycle management. Under this plan, all state and federal agencies that have an impact on salmon are held accountable for conducting business in a coordinated manner that is consistent with conservation and restoration efforts.

Community based action. Government cannot conserve and restore salmon across the landscape. The plan recognizes that actions to conserve and restore salmon will need to be accomplished by local communities and local landowners, with local knowledge of problems and local ownership in solutions. Watershed councils, Soil and Water Conservation Districts, and other grassroots efforts are the vehicle for getting the work done on the ground. State and federal agencies and programs will provide a regulatory foundation and technical support to the watershed councils, but the bulk of the work to conserve and restore watersheds will be done by local people. Outreach and education is a fundamental part of community based action. People must understand the needs of salmon in order to make informed choices in their lives and businesses that will accommodate the needs of the fish.

Monitoring. The monitoring program will provide an annual appraisal of work accomplished and results achieved. Work plans will be used to determine if agencies are doing the things that were promised. Biological and physical sampling will be conducted to determine if salmon habitats and populations are responding as expected to conservation and restoration efforts. Establishment of baseline conditions will permit assessment of future change in the condition of habitat that supports salmon.

Appropriate corrective measures. The plan includes an explicit process for learning from experience, discussing alternative approaches to conservation and restoration, and making changes to programs. Monitoring rates of compliance with environmental protection laws is a fundamental aspect of taking corrective action. The plan emphasizes improving compliance with existing environmental laws before seeking any new protective laws. Compliance with existing laws may be achieved with a combination of education and prioritized enforcement of laws that are expected to yield the greatest benefits for salmon.

In summary, Oregon's Conservation Plan involves: (1) coordination of effort by all parties,

(2) development of action plans with relevance and ownership at the local level, (3) monitoring progress, and (4) making appropriate corrective changes in the future.

Revised Draft of the OCSRI Plan

The OCSRI Plan received critical review by NMFS staff and a diverse representation of individuals and groups (a list of reviewers is provided at the end of this section). To date, over 600 pages of comments, suggestions and questions have been received on the draft OCSRI Plan. An effort was made to make all of these comments broadly available by placing them on the Internet (the address is www.govenor.state.or.us/governor.html). Many of these review comments were useful and provided a basis for making revisions to the Conservation Plan.

This draft of the Conservation Plan includes the following significant improvements.

• New information was provided on the history of restoration efforts.
• A Conceptual Foundation of the Conservation Plan was drafted.
• A proposal to establish an Independent Scientific Review Group was drafted.
• Considerable revision was made to a population dynamics model for coastal coho.
• Fishery harvest adjustment criteria were adjusted to provide greater escapement to the central Oregon coast before fishery mortality could be increased from the 15% to the 20% level.
• A projected schedule for rebuilding coho spawning populations was developed.
• The monitoring program proposal has been implemented and is being improved.
• A strategy to improve compliance with environmental protection laws was strengthened.
• Considerable work was done to improve the outreach and education strategy of the Plan.
• The role and reliability of Watershed Councils, in concert with Soil and Water Conservation Districts and the OSU Cooperative Extension Service was strengthened and clarified.
• State agency measures were strengthened and are explicitly linked to factors for decline and objectives designed to address the factors.
• Substantial measures have been provided by federal agencies. More are expected to be developed in the near future.
• Workplans have been submitted by state and federal agencies to facilitate implementation monitoring and clarify commitment.
• Measures have been identified to provide a higher level of risk reduction to core areas.
• A detailed assessment and action plan has been prepared to conserve and restore anadromous salmonids in the Rogue basin.
• Contributions by AOC/LOC to the Conservation Plan were identified.
• Contributions by Ports to the Conservation Plan were identified.
• A process and schedule for revising Core Area Maps with the assistance of technical experts and stakeholders were established.
• New habitat restoration guides were prepared for the Umpqua and the North Coast. Both demonstrate a commitment to conducting localized restoration projects in a manner that is compatible with watershed processes.
• Oregon's Strategic Plan now includes benchmarks that relate to salmon and water quality.
• The role of Senate Bill 1010 and the Oregon Department of Agriculture within the Conservation Plan has been strengthened and clarified.

Description of the sections
of this draft revision of the Conservation Plan

Section 1: Introduction

This section contains a brief description of the essential elements of the Conservation Plan. It also notes the most significant areas of improvement since the first draft. (Note: This draft revision of the Conservation Plan is provided as an upgrade of the first draft; it supports rather than entirely replaces the first draft.

Section 2: Revised Goals and Strategies

This section presents the revised goals and strategies of the Conservation Plan.

Section 3: History of Restoration Efforts

This section provides a historical perspective on Pacific salmon restoration. It begins with the first recommendations for salmon restoration made in the 1875 report from the U.S. Fish Commissioner and proceeds to highlight eight major subsequent salmon restoration plans. Most importantly, this section notes some of the reasons that previous restoration efforts failed.

Section 4: Conceptual Foundation for the OCSRI

This section documents the conceptual foundation for the OCSRI--the theories, principles, and assumptions that provide the scientific basis for and give direction to salmon management and restoration activities. This piece will provide a scientific basis for the plan to be reviewed, evaluated, and modified over time.

Section 5: Proposal for Independent Scientific Audit of Progress

A proposal that outlines the basic structure and function of an audit team -- a well recognized group of experts in salmonid ecology. This intends to provide an accountability mechanism to the plan through independent scientific review.

Section 6: Oregon Coastal Coho Salmon: Production Potential, Recent Trends, and Prospects for the Future

This report summarizes new information about the population dynamics of coho salmon, describes recent estimates of coho salmon production and spawner populations, and predicts future prospects for production and escarpment levels.

Section 7: Coordination of Effort Among Contributors to OCSRI

This section describes organizational structure that will provide leadership to the OCSRI and facilitate coordination of government natural resource management programs with grassroots conservation and restoration efforts.

Section 8: Funding

This section outlines the state funding package in the Governor's 1997-99 Recommended

Budget -- both the Governor's Natural Resources Investment Budget and the Current Service Level Budgets and Policy Option Packages. It also discusses federal funding.

Section 9: Monitoring Program

This provides the framework for a collaborative monitoring program. It includes objectives, major components, and a list of fifteen distinct tasks ranging from monitoring habitat to fish abundance and ocean productivity levels.

Section 10: Coordinated Enforcement Program

This section discusses the role of the Oregon State Police in the OCSRI. It covers three main concepts: (1) Fish and Wildlife Enforcement Division role in habitat and environmental law,

(2) Organizational approach to habitat/environmental enforcement, and (3) Inclusion of federal agencies and watershed councils into interagency enforcement action plans.

Section 11: Outreach and Education

This section includes a description of group outreach and education efforts as well as specific actions by some agencies. This chapter emphasizes educational objectives, lists materials already developed and outlines some proposed options for continued effective outreach.

Section 12: Implementation Through Watershed Councils

This includes a comprehensive look at the infrastructure of watershed councils in Oregon. It discusses the Governor's Watershed Enhancement Board, technical advisory committees, funding mechanisms, and provides examples of watershed council missions and objectives. The section also includes reference materials on existing watershed councils and GWEB programs with detailed information about South Coast and Rogue Basin councils.

Section 13: Actions and Measures: State Agencies

State agencies' contributions are listed. This section discusses factors for decline, objectives, and agency management measures which fall under four major issue areas: 1) water quality 2) physical habitat 3) water quantity, fish passage and fish screening , and (4) fish management.

Section 14: Annual Workplans: State Agencies

This sections provides the plans and timelines for implementing actions and measures under existing authority and budgets. It also details the proposed actions that would be provided by additional funding for the CSRI.

Section 15: Federal Agency Workplans

Commitments, actions and contributions of twelve federal agencies to the CSRI. They assist through oversight, enforcement, resource management and technical assistance.

Section 16: Actions Designed to Reduce Risk to Core Areas

This section identifies eight key actions/measures that have been either prioritized toward or are specifically directed at reducing risk to habitat within core areas.

Section 17: Southwest Oregon Salmon Restoration Initiative

The southwest initiative is a regional effort used to combine local and state agency efforts to foster salmon recovery through out the south coast region. It is prepared in conjunction with the statewide restoration initiative but attempts to outline specific steps toward salmon recovery in southwest Oregon. This is a comprehensive study that includes a number of factors unique to the southwest region under a strategy that parallels the statewide plan.

Section 18: Evaluation of City and County Actions
Provided by League of Oregon Cities and Association of Oregon Counties
The LOC and AOC have provided a detailed evaluation of how existing programs and efforts by cities and counties are contributing to the restoration initiative. This includes a discussion of the types and extent of actions being taken by city and county governments that are likely to protect and restore coastal salmon habitat.

Section 19: Measures: Oregon Ports

This section describes how Oregon ports can mesh their management goals with those of the coastal salmon restoration initiative. It provides a list of actions that ports can take to enhance the success of the restoration efforts.

Section 20: Discussion Issue Papers

Fourteen papers that discuss specific salmon restoration-related issues that fall under the major topics: policy, cumulative effects, physical habitats, water quantity, water quality, and fishery management. These papers were developed as a starting point for discussions between state agencies and NMFS and aimed to clarify significant areas of disagreement or uncertainty.

Section 21: Forestry Issue Papers

This section consists of seven major issue papers prepared to facilitate technical discussions with NMFS staff. The state expects that these papers will be modified by a collaborative effort involving NMFS and the Oregon Department of Forestry staff along with invited independent reviewers.

Section 22: Process for Revision of Core Area Maps

This document describes a process and timetable for revising core area maps. Maps of provisionally identified core areas that were provided in the August 1997 Draft Conservation Plan are not included in this section.

Section 23: Umpqua Habitat Restoration Guide

This identifies stream reaches where habitat restoration work may improve the status of anadromous salmonids. It represents the contribution of ODFW, Oregon Wildlife Heritage Foundation, and the Umpqua Basin Fisheries Restoration Initiative. It also discusses the selection of appropriate restoration techniques.

Section 24: Revised North Coast Restoration Guide

Outlines potential stream habitat enhancement projects in drainages in the north coast of Oregon. It provides a prioritized database of potential instream and riparian enhancement sites.

Section 25: Oregon Shines II: Updating Oregon's Strategic Plan

An introductory letter from the Oregon Progress Board highlights specific areas of Oregon's updated strategic plan that address issues of natural resource significance, particularly salmon restoration issues. This section includes a copy of the revised strategic plan.

Section 26: Description of Oregon Department of Agriculture Programs Relating to CSRI

This includes two major programs: the Confined Animal Feeding Programs, and Water Quality Management Programs. This report provides background description of the programs, future workplans, and timelines for implementation.

Section 27: Appraisal of the Revised Conservation Plan

This section discusses the rationale for Oregon's assertion that the Conservation Plan is sufficient to recover coastal coho salmon, based on eight major considerations. The state concludes that the plan is sufficient to achieve recovery of anadromous salmonids (especially coho) in coastal river basins, especially in the northern ESU.

Summary of Sources of Critical Review

Invited Review from Oregon State University
College of Ag Sciences, Dept. of Rangeland Resources - Mike Borman
College of Liberal Arts - Assoc. Dean William G. Robbins
College of Oceanic and Atmospheric Sciences - WG Pearcy, Professor Emeritus
College of Oceanic and Atmospheric Sciences - Jim Good, Professor
Coos County Extension - Paul Heikkila, Agent
Curry County Extension - Derek Godwin, Watershed Management
Oregon State University Forest Engineering Dept. - Paul W. Adams
Oregon State University Sea Grant Extension - Pat Corcoran
Oregon State University Sea Grant Extension - Tim Waldvogel
Oregon State University Dept. of Fisheries & Wildlife - Dr. Stan Gregory
Oregon State University Dept. of Fisheries & Wildlife - Dr. Bruce Mate

Invited Review from the American Fisheries Society

Dan Bottom
Rich Carmichael
Jeffrey J. Dose
J.L. Ebersole
Phil Howell
Bob Hughes
Chuck Huntington
Steve Johnson
Russell Lande
W.J. Liss
R.K. Nawa
W.J. Overholtz
Kirk Schroeder
Gordon Reeves
Grant Thompson

Other Invited Reviewers
Jim Anderson
Donald W. Chapman
Chris A. Frissell
James Karr
Jim Lichatowich
David R. Montgomery
Katherine W. Myers
Bruce Suzumoto

Federal Agency Reviews
US BLM - Elaine Y. Zelinski
NOAA/NMFS - William Stelle, Jr.
US EPA Region 10 - Chuck Clarke, Regional Administrator
USFWS - Russell D. Petersen, Acting Oregon State Office Supervisor

Industry Reviews
Oregon Forest Industries Council - Dave Bowden, Chairman of The Board
S.P. Cramer & Associates, Inc., Fisheries Consultants - Steven P. Cramer
Sun Studs, Inc., Sun Veneer Division - Rick Sohn, Lands Manager
Georgia-Pacific Corp. - Blair A. Holman, Group Manager, Lands Management
Georgia-Pacific Corp. - Joseph A. Matejka, Resource Manager
Pacific Coast Federation of Fisherman's Association - Glen Spain, NW Regional Director
Association of Oregon Loggers Inc. - Rex Storm, Forest Policy Analyst
The Port of Brookings Harbor, Oregon - Russ Crabtree, Port Manager
City of Ashland, Office of Mayor - Catherine Golden, Mayor
Oregon Troll Fishing Industry - John Wilson
Coos County Board of Commissioners - Gordon Ross

Conservation Organization Reviews
Environmental Defense Fund - Rodney M. Fujita, Ph.D
Oregon Trout - Geoff Pampush, Executive Director
The Nature Conservancy - Dick Vander Schaaf, Public Lands Coordinator
Assoc. of NW Steelheaders - Gary Benson, Dennis VavRosky
WaterWatch - Jeff Curtis, Executive Directo
Fish Refuge Working Group - Guido R. Rahr, Shauna M. Whidden
Siskiyou Project - Barbara Ullian, Siskiyou Project
Umpqua Watersheds, Inc. - Francis Eatherington
National Wildlife Federation - Peter M.K. Frost, Counsel
The Pacific Rivers Council - David Bayles, Mary Scurlock
Salmon For All - Steve Fick, President
Umpqua Valley Audubon Society - Diana Wales, Vice-President
Pacific Fishery Management Council - Robert C. Fletcher, Chairman
Friends of The Nestucca - Les Helgeson, President
Sierra Club, Oregon Chapter - Jean Shaffer
Port of Gold Beach - Ron Armstrong, Port Manager
The Siuslaw Institute of Watershed Arts and Science, Inc. - Johnny Sundstrom
National Audubon Society - Paul Engelmeyer, NW Policy Analyst
Mid-Coast Watersheds Council - Fran Recht, Chair