110 



There is much literature from the field of public administration to support my ar- 

 guments. To cite one example, Clark and Harvey (1991; Chapter entiued, Imple- 

 menting Recovery Policy: Learning As We Go? In balancing on the Brink of Extinc- 

 tion, Cathryn A. Kohm, editor) argue that successful implementation of endangered 

 species recovery programs is dependent on more than just good technical and bio- 

 logical tools. While participants in such recovery programs often attribute imple- 

 mentation failures to 'Taad luck, lack of resources, pontics,' or lack of commitment 

 in other organizations," Clark and Harvey (1991, p. 147) contend that implementa- 

 tion failures can be a result of inappropriate organizational and decisionmaking ar- 

 rangements. 



Since most recovery challenges go well beyond the boundaries of a single 

 organization, coalitions are formed that must integrate diverse structures, 

 ideologies, and standard operating procedures. But agencies setting up a 

 new recovery program rarefy give explicit thought to how the recovery coali- 

 tion should be structured. Programs are often set up along standard bu- 

 reaucratic lines — not because tnis arrangement has proved most effective 

 but because no other structure is considered. This in turn limits the set of 

 solutions that seem plausible (Clark and Harvey, 1991, p. 153). 

 I believe that an independent peer review process with financial influence and ex- 

 tensive interagency participation and coordination would eo a long way toward solv- 

 ing the institutional and organizational problems of the Columbia River basin's En- 

 dangered Species Act implementation decision making process. 



In closing I note that most mtyor national research programs such as those of the 

 National Science Foundation, the Environmental Protection Agency, and the Na- 

 tional Institutes of Health, have coherent program goals and peer review processes. 

 Should the Fish and Wildlife Program and Endangered Species Act implementation, 

 a research program that spends on the order of $100 miHion a year on information 

 of vital national interest, not have a peer review process? 



I appreciate the opportunity to share my information and professional opinions on 

 this matter of importance to the implementation of salmon recovery under the En- 

 dangered Species Act. If I may be of further service to you or the Subcommittee, 

 please let me know. 



Prepared Statement of Edward C. Bowles, Anadromous Fish Manager, 

 Idaho Department of Fish and Game 



overview 



Idaho Department of Fish and Game (IDFG) supports the concept of providing 

 spillway passage of smolts as they migrate over dams in the lower Snake and Co- 

 lumbia rivers. Managed spill is a valuable and scientifically valid recovery tool that 

 does not require flow augmentation from upriver storage reservoirs to be imple- 

 mented. The National Marine Fisheries Service's spill policy reflects the potential 

 benefits this management tool can provide to recovery efforts. 



Salmon and steelhead represent a tremendous financial, recreational and cultural 

 heritage for the citizens of the Northwest. The Snake River component of these fish 

 represent an ecological cornerstone for spring/summer chinook and summer 

 steelhead throughout the Columbia River basin. Loss of this resource would strike 

 a devastating blow to the heritage and character of Idaho and the entire Northwest. 



It is generally accepted that dams on the lower Snake and Columbia rivers are 

 one of the m^or factors in the decline of Snake River salmon (CBFWA 1991; NPPC 

 1993; NMFS 1994, 1995). Most of these stocks once thrived by spawning far inland 

 in mountainous headwaters and sending their progeny to the ocean on the wave of 

 natural snowmelt each spring. This journey has been altered dramatically as a re- 

 sult of the mainstem hydroelectric system. This broken link in the salmon's eco- 

 Sstem must be repaired for recovery to occur. Managed spill at mainstem dams on 

 e lower Snake and Columbia rivers is one of our b^st and most practical tools to 

 repair this broken link. 



answers to specified questions 



1. Are the benefits of using spill as a fish passage mechanism established, espe- 

 cially in relation to other fish passage mechanisms? 



Idaho Department of Fish and Game (IDFG) generally supports the NMFS spill 

 policy. This policy is closely tied to spill measures recommended in the Northwest 

 Power Plamung Council's Jish and Wildlife Program (NPPC 1993). A carefully man- 

 aged spill program at dams on the lower Snake and Columbia rivers is essential 

 to interim salmon recovery efforts. Spill is necessary because: (1) it is the best way 



