Lower Fraser Coho Conservation and Enhancement Strategy

Year 2010
Proponent Pacific Salmon Foundation
Project type Governance
FSWP funding source DFO Fraser Basin Initiative
Grant amount $74,924.00
Total project value $200,914.00
ID number FSWP10-D106-P

Location: Greater Vancouver, Greater Vancouver

Project Summary

SUMMARY

The goal of this project is to provide a strategy and action plan targeted at the Municipal Government /Local Community engagement platform that results in actions to identify, prioritize and implement projects that protect, restore and enhance coho populations and their habitats in the mainstem, estuary and tributaries of the Lower Fraser River.  Once developed, this document will form a procedural methodology for this platform and will inform PSF program areas that will continue over the long term to work with local government, First Nations (FNs) and Streamkeeper Groups (SGs) to coordinate with all other levels of government to implement high priority coho habitat projects at a broader and larger scale normally beyond the ability of a single entity. 

OVERVIEW


Lower Fraser coho salmon stocks are in crisis.  Marine survival has declined from a high of about 35% in 1975 to the current 0.008% for hatchery and 0.014% wild coho.  Inch Creek coho returns, the lower Fraser indicator stream, echoes a similar collapse observed at other streams and recorded at other indicator sites.  Coho are experiencing the worst returns on record.  Adult returns at Inch Creek have declined from over 22,000 in 2001 to less than 1000 in 2007.  This too is echoed across the lower Fraser.

Coho spend about 18 months of their short 3 year life in freshwater.  They are biosensors as well as a keystone species.  Though coho are the primary target species of this initiative, by protecting and rehabilitating habitat and conserving and enhancing coho stocks, all other aquatic flora and fauna benefit as outputs and outcomes of restored ecosystem function, increased biodiversity and an increasingly engaged public.  The role freshwater habitat and life experiences have on the epigenetic response and behavior of coho is just beginning to be understood; however, there is a body of evidence that indicates water quality, water quantity, habitat function, productivity and connectivity play a critical role. 

The goal of this project is to provide a strategy and action plan to identify, prioritize and implement projects that protect, restore and enhance coho populations and their habitats in the mainstem, estuary and tributaries of the Lower Fraser River.  Once developed, this document will inform PSF program areas and procedural methodologies that will continue over the long term to work with First Nations (FNs) and Streamkeeper Groups (SGs) to coordinate with all levels of government and implement high priority coho habitat projects at a broader and larger scale normally beyond the ability of a single entity.  We believe the greatest opportunity to facilitate change that results in the implementation of these community actions will be by developing sound working relationships with municipal and FN governments and community stewardship groups.  There are currently unrealized opportunities that can be acted upon in a more efficient and effective manner to increase the benefits and outcomes for coho.

Another significant opportunity to facilitate change and allow more habitat restoration projects to be implemented is by examining alternative mechanisms of implementation including revisions to the interpretation of regulatory policies and procedures under the Fisheries Act.  For example, high priority habitat projects could be implemented by steering potential land developers, Municipalities, industry or government-led initiatives that require habitat compensation credits to a prioritized list of candidate habitat projects in each Municipality.  Also, habitat compensation banking (physical or financial), conservation easements, revision of eligible projects as habitat compensation projects under a HADD (Section 35(2) of Fisheries Act),  or habitat credits based on pre- versus post-project gains in target fish production are alternative project implementation mechanisms that will be explored.

As an outcome of this project, larger and more costly projects that protect, restore and enhance coho populations and their habitats in the mainstem, estuary and tributaries of the Lower Fraser River will be able to be undertaken.  Processes to include broader participation that will embrace FN traditional knowledge and local knowledge of stewards, as well as their contribution or access to resources will scale up the works and connectivity of future projects.  This initiative will act as a new lever for social and environmental inclusion.

By beginning in the watersheds, creeks and rivers within communities, it will also provide a framework for bringing together the resources and actors necessary to have the broader public informed and involved in the policy, regulatory and governance changes on the horizon in BC.  Many of these changes will be positively influenced by this initiative.  Living Water Smart, Wild Salmon Policy, the final Report of the Pacific Salmon Forum and the proposed changes to the Water Act and Community Charter to accommodate watershed council are just a few examples.

A coho habitat protection, restoration and enhancement strategy does not currently exist or at best exists as a fragmented approach by various groups or government departments in the Lower Fraser River.  Larger projects that have often been identified by Streamkeepers and others are not easily implemented by FNs and volunteer organizations due to significant costs associated with, for example, design, regulatory approval, public consultation, and construction costs.  In addition, FNs and SGs are unaccustomed to the procedural steps to follow and potential funding mechanisms available to them when they try to fund and implement these larger scale projects.  Overall, implementing this scale of project is a big challenge for FNs and volunteer organizations.

By developing this coho habitat strategy we will: 
1. Forge the establishment of formal relationships between Municipal governments and FNs and SGs on fish habitat protection/rehabilitation/enhancement projects through the Municipalities’  Environmental Review Committees;
2. Collate existing, or map where necessary,  lower Fraser coho habitat, prioritize it by coho need, then provide an assessment of its quality and other attributes to inform a project prioritization framework;
3. Link existing works, research and resources to current and future works and information needs such s the Fraser River Action Plan Legacy information and other large scale initiatives resources; 
4. Identify a list of high priority projects within the 10 lower Fraser Municipalities which are currently significant challenges for FNs and SGs to implement on their own;
5. Outline and introduce potential mechanisms to allow high priority watershed projects, that have been identified by FNs and SGs, to be implemented as, for example, a habitat compensation project by a developer with the Municipality acting as project facilitator;
6. Identify and develop 5 high priority habitat rehabilitation/enhancement project examples within 5 Municipalities that will include specific conceptual designs and construction cost estimates for use as sample populated project proposal templates; and
7. Provide a work plan for ongoing coordination and ‘shepherding’ by PSF of the coho habitat strategy that includes an annual schedule of work activities (e.g., Municipal and ERC meetings; FN, SG and Pulling Together Steering Committee meetings and workshops; coordinating with FNs, SGs, Municipalities, and DFO to facilitate the implementation of larger scale projects; incorporation and communication of results of the coho habitat strategy into other lower Fraser / Georgia Basin fisheries programs (e.g., Georgia Basin Salmon Initiative)).

We desire this strategic document to guide our shared and linked activities to ensure we are taking the right steps in the right order to get us where we ultimately want to be - with abundant, genetically diverse salmon in the wild in our urban and human-altered landscapes in the lower Fraser.

As part of a 2008 FSWP project, two ‘Lower Fraser Coho Conservation and Enhancement Initiative: Pulling Together’ events were held that brought together First Nations, Government, Industry, Communities and stewards to share and inform each other through science, citizen science and local and traditional knowledge.  A Steering Committee representing FNs, Streamkeepers, Municipalities, DFO, and PSF was established to carry on the objectives and actions recommended at the two workshops.  One recommendation from the Pulling Together Events was the development of a Lower Fraser Coho Conservation and Enhancement Strategy to help focus priority activities that result in meaningful, effective and coordinated work by workshop participants in the future. 

OBJECTIVES


Objective #1 To initiate a collaborative working relationship between Municipalities, First Nations (FNs), Streamkeeper Groups (SGs) and Pacific Salmon Foundation (PSF) that is centered around the development and implementation of high priority fish habitat projects.
Objective #2 To describe alternative funding and administrative mechanisms that can be applied to implement large scale fish habitat projects that are acceptable to regulatory agencies, local government, FNs and SGs.
Objective #3 To develop a long term strategy that Municipalities, First Nations (FNs) and Streamkeeper Groups (SGs) can collaboratively use to implement large scale habitat protection, restoration and enhancement projects in the lower Fraser River watershed.

METHODS

The methods used to prepared a Lower Fraser coho strategy will include:
1. A literature summary of the background information on coho for Lower Fraser River watershed that includes:  a) a bibliography of key habitat assessment and enhancement/restoration design reports pertinent to the study area; b) identification of critical habitats, and c) identification of current habitat limitations and threats;
2. An examination and compilation of alternative mechanisms to implement habitat protection, restoration or enhancement, such as: 
a. steering potential land developers, Municipalities, industry or government-led initiatives that require habitat compensation credits to the prioritized list of candidate habitat projects for each Municipaliy,
b. habitat compensation banking (physical or financial),
c. conservation easements,
d. revision of eligible projects as habitat compensation projects under a HADD (Section 35(2) of Fisheries Act),
e. habitat credits based on pre- versus post-project gains in target fish production, etc.;
3. A meeting with the ‘Pulling Together’ Steering Committee to outline the coho strategy methods and deliverables and to obtain input on project design, objectives, scheduling, and potential outcomes;
4. A series of meetings (~6 FNs meetings + ~10 SGs per meeting for a total of 12 meetings) with 6 First Nations (FNs) and 60 Streamkeeper Groups (SGs) to describe our objectives for the coho strategy and solicit input on their candidate high priority projects;
5. Compilation of a prioritized list of high priority habitat projects as identified through #1-3 above;
6. A series of meetings (2 Municipalities per meeting = 5 meetings total) with the Environmental Review Committees of the 10 Municipalities to initiate collaborative discussions between FNs, SGs and Municipalities that pertains to the implementation of high priority coho habitat projects;
7. Develop an integrated Lower Fraser coho strategy in collaboration with the Pulling Together Steering Committee that is guided by the information from #1-4 above,
8. Prepare a draft report that:
a. describes the potential roles and responsibilities of key members from Municipalities, FNs, SGs, and PSF in the development, facilitation and implementation of coho habitat projects in the lower Fraser River watershed;
b. identifies the high priority large scale projects on Public and Private Lands within each Municipality in the lower Fraser River watershed;
c. describes the Municipal and PSF individuals and primary FN or SG stakeholders to lead the implementation of each priority work activity in each Municipality;
d. describes in detail several alternative mechanisms to fund and implement habitat projects on Public and Private Lands in the lower Fraser; and
e. describes a consultation and communications plan to establish a protocol to review and revise proposed work activities prior to implementation; to provide formal (meetings, discussion forums) and informal (electronic updates) mechanisms and schedules to allow Pulling Together and other Coho Strategy participants an opportunity for information exchange and for them to provide collaborative input / revisions to the long term strategic plan and its associated work activities.
9. A meeting with the ‘Pulling Together’ Steering Committee to review the draft report and solicit further input;
10. Prepare a final report.

 

BENEFITS

This project will identify a strategy to protect, restore and enhance coho populations and habitat in lower Fraser watersheds.  In particular, high priority projects will be identified that address critical habitat shortfalls that are currently limiting coho production from Fraser River tributaries.  We anticipate that the methodology and results of this project will be applicable to numerous other watersheds where salmon conservation and management is of concern.

This project will contribute to the goals and objectives and priorities of the FSWP by being a vehicle for the positive behavior changes and new awareness of the public to link to activities and processes in their community through this initiative. 

The linking of municipal governments and the stewardship community to the broader community through positive partnerships and projects will created the most sustainable benefits to coho: informed citizens aware to the needs of salmon, who are interested and committed and involved.

Engage First Nations, government agencies and community groups/NGOs

First Nations, government agencies and community groups were all involved in the Pulling Together events and will continue to be represented and involved in this project through the Pulling Together Steering Committee.

Complement or implement local and / or regional plans (e.g., recovery plans, watershed plans)

This project and report will complement the existing draft DFO recovery strategy for Interior Fraser River coho.


Value-added aspects

“Capacity building, mentoring & leadership, participation/engagement of under-represented groups, strengthening organizational & institutional relationships, and influences policy and decision-making” are envisioned as key outcomes from our proposed project, both in the short term and over the long term.  We believe the success of this project will be measured in:
1. the level of cooperation and collaboration between Municipalities, FNs and SGs in the implementation of fish habitat protection, enhancement and restoration projects;
2. the amount of expansion in capacity for FNs and SGs to undertake and complete the implementation of large scale habitat projects;
3. the application of innovative approaches to address No Net Loss and attainment of habitat compensation credits for large development projects;

Development of the coho habitat strategy and its implementation over the long term will require the establishment of successful working relationships and partnerships between individuals that are connected or concerned about lower Fraser coho including community conservation groups, local, provincial and federal governments, industry, First Nations, volunteer organizations, and fisheries agencies.  More specifically, these groups and organizations will include:  the Municipalities/Cities of Vancouver, Burnaby, Coquitlam, Port Coquitlam, Maple Ridge, Pitt Meadows, New Westminster, Surrey, Delta and Richmond; Metro Vancouver; Port Metro Vancouver; First Nations - Musqueam, Kwikwetlem, Kwantlen, Tsawwassen, Katzie, and Tsleil-Waututh; Department of Fisheries and Oceans (DFO); BC Ministry of Environment (MOE); Pacific Streamkeepers Federation (PSkF) and associated Streamkeeper Groups; Fraser River Estuary Management Program (FREMP); Fraser River Sturgeon Conservation Society (FRSCS); universities; and Pacific Salmon Foundation (PSF).



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