The Elwha River Ecosystem Restoration Project: A Case Study of Government-to-Government Co-Management Haley L. Harguth A thesis submitted in partial fulfillment of the requirements for the degree of Master of Marine Affairs University of Washington 2013 Committee: David Fluharty Craig Thomas Program Authorized to Offer Degree: School of Marine & Environmental Affairs ©Copyright 2013 Haley L. Harguth University of Washington Abstract Evaluating Co-Management at the Elwha River Ecosystem Restoration Project Haley L. Harguth Chair of the Supervisory Committee: Professor David Fluharty School of Marine & Environmental Affairs The contribution of indigenous groups in natural resource management is generally believed to enhance management practices and produce positive outcomes for its participants, by improving stewardship and encouraging power-sharing arrangements, among other outcomes. For federally recognized Native American communities, government-to-government co-management relationships with the U.S. federal government have provided opportunities to modernize the treaty trust relationship, and enrich linkages between environmental ethics and cultural heritage, building tribal capacity and autonomy. The case of the Elwha River dam removal and ecosystem restoration on the Olympic Peninsula in Washington State presents an opportunity to demonstrate the progress made in consultation practices and co-management efforts on the behalf of the U.S. government, in the execution of the largest dam removal project ever attempted. For the Lower Elwha Klallam Tribe, river restoration will re-connect the Tribe to the legendary salmon runs that are its cultural livelihood. The co-management relationship established between the project’s two lead actors, the National Park Service and the Lower Elwha Klallam Tribe, has demonstrated the positive outcomes of a mutually respected process facilitated through power-sharing, as well as the dilemma for tribal decision-makers in maintaining cultural tradition and engaging in environmental management under congressional mandates. CONTENTS Figures ................................................................................................................................................ iii Tables .................................................................................................................................................. iv Introduction .......................................................................................................................................... 1 Research Objectives ................................................................................................................................................................... 5 Research Methods ....................................................................................................................................................................... 9 Background ........................................................................................................................................ 13 The Elwha River ........................................................................................................................................................................ 13 The Lower Elwha Klallam Tribe ........................................................................................................................................ 16 European Settlement Era ...................................................................................................................................................... 21 Conquering the Final Frontier ............................................................................................................................................ 23 A Dam on the Elwha ........................................................................................................................................................... 25 Impacts of the Elwha River Dams ..................................................................................................................................... 33 The Olympic National Park .................................................................................................................................................. 41 American Indian Law And Policy ..................................................................................................... 44 History of the Native American and U.S. Government Relationship .................................................................. 44 Sovereignty in a Modern Context ...................................................................................................................................... 51 Federal Consultation Processes/Requirements ......................................................................................................... 53 Department of the Interior Consultation Guidelines ........................................................................................... 57 National Park Service Consultation Policies ........................................................................................................... 58 Memoranda of Understanding ...................................................................................................................................... 60 Tribes and the States .............................................................................................................................................................. 60 Collaborative Environmental Management ....................................................................................... 63 Evolution of Collaborative Environmental Management ....................................................................................... 73 Outcomes of Collaborative Environmental Management ....................................................................................... 76 Co-Management with Indigenous Peoples .................................................................................................................... 79 Co-Management in Washington State ........................................................................................................................... 104 Case Study: Co-Management of the Elwha River Restoration Project ........................................... 117 Pre-Conditions of Co-Management: Collaboration at the Elwha River .......................................................... 117 Elwha Dam Re-Licensing ............................................................................................................................................... 119 The Elwha Act: A Legislative Solution ...................................................................................................................... 133 The Elwha River Ecosystem Restoration Project ..................................................................................................... 135 The Elwha Report ............................................................................................................................................................. 136 i Environmental Impact Statement Process ............................................................................................................ 139 ERRP Goals and Objectives ........................................................................................................................................... 142 Funding the ERRP ............................................................................................................................................................. 144 Cooperative Government-to-Government Framework at the Elwha ......................................................... 149 Annual Funding Agreement ......................................................................................................................................... 150 The Elwha River Re-Born .............................................................................................................................................. 155 Conclusions: Collaborating To Free the Elwha River ..................................................................... 161 Co-Management of the ERRP ............................................................................................................................................ 162 Early Formation of Collaborative Relationships ................................................................................................. 164 Co-Management Processes at the ERRP ................................................................................................................. 169 Co-Management Outcomes at the Elwha River .................................................................................................... 176 Categorizing the Co-Management of the ERRP .................................................................................................... 180 Limitations and Future Applications ............................................................................................... 183 References ........................................................................................................................................ 186 Appendices ....................................................................................................................................... 195 Appendix A – Interview Guide .........................................................................................................................................