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1994 Columbia River Basin Fish and Wildlife Program |
| Council document 94-55 | |
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4.0 Components of the Program Framework
The program framework provides the structure for the fish and wildlife program. It includes the overall program goal, rebuilding targets for identified populations, and schedules to achieve the rebuilding targets. The framework also provides the biological objectives for the program. Biological objectives describe biological change needed to rebuild individual populations. Measures are evaluated against these objectives to identify the strategy that will achieve the objective for the least cost. Finally, performance standards provide readily measurable indices of biological and physical change expected from the measures. The relationship between these elements forms a hierarchy as depicted in the following diagram (not available in HTML version).
The components of the program framework are linked by a series of facts and assumptions that provide the rationale for the measures in the Council's program. For the most part, these assumptions have been implicit. As such, the program is difficult to evaluate. Inconsistencies among measures are difficult to identify. The Council believes that the conceptual foundation for the program should be explicit so that inconsistencies and scientific weaknesses can be identified. The Council has begun this process by identifying critical hypotheses associated with mainstem passage (Section 5.0E). In addition, the Council has called on the Independent Scientific Group to develop an overall conceptual foundation for the program (Section 5.0F).
4.0A Program Goals
The program goals set the direction and scope of the program and provide the philosophy that guides the Council's selection of measures. Examples include goals to maintain and enhance stock diversity, restore weak runs and double overall salmon production. Collectively, the other elements of the program are expected to make significant progress toward or accomplish the goals.
4.0B Rebuilding Targets and Schedules
Rebuilding targets provide the management intent and the numeric goals for the population. Rebuilding schedules describe and refer to specific populations and incorporate the idea of stock conservation units, minimum sustainable population size, compatibility with other stocks and expected variability. Rebuilding schedules are based on the biological needs of the fish, management goals and the projected effectiveness of actions. Because of the number of conditions affecting population size that are outside the control of this program, it may be necessary to state rebuilding schedules in terms of the probability of reaching a numeric target within the schedule given achievement of the biological objectives. Rebuilding targets are dynamic elements that will likely change as knowledge increases and techniques are improved.
4.0C Biological Objectives
Biological objectives describe the biological characteristics needed to achieve the rebuilding targets and, ultimately, the overall program goal. They also are intended to provide a standard against which to compare alternative measures under Section 839b(h)(6)(C) of the Northwest Power Act. Biological objectives should be independent of the measures and should not constrain the Council to a single course of action.
Development of biological objectives must be based on a sound technical and analytical foundation that incorporates all phases of the life cycle of salmon and steelhead. Because our scientific information is imperfect, the biological objectives should not be considered immutable standards, but instead should be viewed within the context of the Council's adaptive management approach and will be refined as knowledge improves.
4.0D Performance Standards
The effectiveness of actions is often uncertain or depends on other actions. It will be important for the Council and the region to track measures in a timely manner. Performance standards for each action or set of actions should provide an easily measurable index that relates to the type of biological or physical change intended. Performance standards provide a point of reference against which to monitor change, and units of measure to define change. They are not intended to state or limit obligations or to resolve technical uncertainties.
4.0E Measures
Program measures are specific actions to be undertaken to contribute to achieving biological objectives and rebuilding schedules. When monitoring shows a program measure is not performing adequately, the measure should be modified or replaced. Measures must stand or fall on the basis of their demonstrated contribution toward the biological objectives.