Lower Snake River Dams Stakeholder Engagement Report FINAL DRAFT March 6, 2020 Prepared by: Kramer Consulting Ross Strategic White Bluffs Consulting Contents Executive Summary .......................................................... 1 Opportunities to Increase Understanding .................................... 52 Background and Context ............................................................... 2 Public Comments Related to Agriculture ..................................... 52 Major Findings and Perspectives ................................................... 3 Section 7: Transportation .............................................. 53 Opportunities to Increase Understanding .................................... 12 Context ........................................................................................ 53 Moving Forward ........................................................................... 13 Perspectives ................................................................................ 60 Section 1: Purpose and Scope of Report ..................... 15 Opportunities to Increase Understanding .................................... 62 Background .................................................................................. 15 Public Comments Related to Transportation............................... 62 The Intent of the Report and Engagement Process .................... 15 Section 8: Recreation ..................................................... 64 Methodology................................................................................. 16 Context ........................................................................................ 64 Public Engagement Process ........................................................ 17 Perspectives ................................................................................ 64 Report Overview .......................................................................... 18 Opportunities to Increase Understanding .................................... 65 Section 2: Background on Columbia River and Lower Public Comments on Recreation ................................................. 65 Snake River Dams ........................................................... 19 Section 9: Economics .................................................... 67 Columbia River System Dams ..................................................... 19 Context ........................................................................................ 67 Lower Snake River Dams ............................................................ 19 Perspectives ................................................................................ 72 Section 3: Tribal Connections to the Lower Snake River Opportunities to Increase Understanding .................................... 75 Dams ................................................................................ 22 Public Comments on Economics ................................................. 75 Loss of Salmon ............................................................................ 23 Section 10: Moving Forward ......................................... 76 Loss of Access to Land and Cultural Sites .................................. 24 Careful Framing of Any Subsequent Conversation Is Important . 76 Tribal Engagement Moving Forward ............................................ 25 An Increase in Respect and Understanding is Needed .............. 77 Section 4: Salmon/Steelhead/Orca/Ecological ............. 26 A Desire for Dialogue .................................................................. 77 Context ......................................................................................... 26 Appendix A: Annotated Bibliography .......................... 80 Perspectives................................................................................. 35 Appendix B: Relevant State and Federal Studies and Opportunities to Increase Understanding .................................... 39 Task Forces .................................................................... 98 Public Comments Related to Salmon/Steelhead/orca/Ecological ..................................................................................................... 39 Appendix C: Lower Snake River Dams Stakeholder Engagement Interviewee List ...................................... 103 Section 5: Energy ............................................................ 41 Appendix D: Online Survey ........................................ 107 Context ......................................................................................... 41 Copy of Online Survey............................................................... 107 Perspectives................................................................................. 44 Survey Responses .................................................................... 115 Opportunities to Increase Understanding .................................... 46 Appendix E: Public Workshop Panel Members ......... 116 Public Comments Related to Energy ........................................... 47 Appendix F: Frequently Asked Questions and Section 6: Agriculture ..................................................... 48 Responses .................................................................... 120 Context ......................................................................................... 48 Appendix G: Works Cited ............................................ 128 Perspectives................................................................................. 50 Executive Summary Salmon, orca, agriculture and energy are fundamental to Washington’s past and future. They symbolize who we are as residents of the Pacific Northwest and define our communities and our economy. The lower Snake River dams have touched on each of these topics since they were constructed over 40 years ago. They have boosted the economy and local communities in southeast Washington but have also harmed tribal and fishing communities throughout the Pacific Northwest. The future of the LSRD is inextricably linked to the future of southeast Washington, Washington state and the Pacific Northwest. There are differing perspectives on how breaching and removing or retaining the lower Snake River dams will affect salmon and orcas as well as agricultural, transportation, power and recreation interests. The term breach refers to removing river barriers, such as the earth-filled embankments that create reservoirs. Remove means that, along with the earth filled embankment, the concrete portions of the dam including the powerhouse would be taken down. For the purposes of this report, the term breach is used to capture both concepts. Over the past 25 years, multiple studies by different organizations and from different perspectives have evaluated the issues with, as yet, no clear consensus about impacts of breaching or retaining the LSRD. At the same time, some themes emerged from the studies, interviews and public engagement process: (1) There are significantly different views of the impacts from breaching the dams on salmon, orca, agriculture, transportation and economics. More information is needed to create opportunities for greater understanding. (2) Energy, transportation, agriculture, salmon and orca are complex issues and decisions about the lower Snake River dams need to consider the broader systems and context for each. Each issue is dynamic, future changes may provide more options as well as more challenges. (3) People across the diversity of interests expressed the desire to have more informed and respectful conversations. Given that issues around the lower Snake River dams have long been in litigation, the ability for shared learning, collaborative problem-solving and a new dialogue has so far been limited. Many of those interviewed are hopeful about the significant benefits a collaborative dialogue could offer to a process that has so far been stuck in a cycle of study, legal actions and court decisions. The intent of this report is to summarize the views of Washingtonians on retaining or breaching the LSRD. It was prepared in response to recommendations of Gov. Jay Inslee’s Southern Resident Orca Task Force to further investigate the impacts of breaching the LSRD as a means to provide more salmon for Southern Resident orcas to eat. Gov. Inslee will use this information to inform his perspective on the LSRD and determine if and how to participate in ongoing federal environmental evaluations of the Columbia and Snake River system, including the draft Columbia River System Operations Environmental Impact Statement that was released in February 2020. Findings from the draft CRSO EIS are not incorporated in this report because it was released after the public comment period. This report captures perspectives on the potential positive and negative impacts (social, economic and environmental), as well as opportunities gained and lost, of either retaining the dams or breaching them. Perspectives the consultant team heard repeatedly from stakeholders or found in published documents are summarized into themes supporting retaining or breaching the dams. The consultant team did not try to reconcile divergent perspectives, determine who was “right” or decide Lower Snake River Dams Stakeholder Engagement Final Report — March 2020 1 which perspectives carry more weight than others. The emphasis is on faithfully capturing what people said and, where possible, why they said it. The report is based on four sources of information: