Predation of Juvenile Salmon and Steelhead in the Columbia Basin and Along the Oregon Coast

The importance of predation of juvenile salmon and steelhead in the decline and in the recovery of Pacific Northwest salmonids is controversial.

This web site links information about the predation of juvenile salmon and steelhead in the Columbia Basin and along the Oregon Coast. Predators of smolts include birds (e.g., Caspian terns, gulls, and cormorants), fish (e.g., northern pikeminnow [formerly northern squawfish], walleye, and bass), and marine mammals (harbor seals and sea lions).

Table of Contents for Predation of Juvenile Salmon

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Introduction (February 2003)

(Much of this Introduction is discussed in greater detail in my 2003 Review about bird predation at 14 Columbia Basin dams .)

The 4H's (Hydropower, Habitat, Harvest, and Hatcheries) are generally considered to be the causes of the decline in the abundance of salmon and steelhead in the Columbia Basin and along the Oregon Coast. However, predation is also considered to be a factor in the decline or in the recovery of salmonid populations, though its importance and its management are controversial.

Unacceptable Levels of Predation of Juvenile Salmon

The level of predation of juvenile salmon and steelhead that is unacceptable depends largely upon opinions. In general, any predation may be too much for some people, moderate predation may be acceptable to many, and all predation may be permissible to others.

The unacceptance of predation can depend upon the species of predator and prey:

The level of acceptance of predation also depends upon whether predation is on private or public lands. Some groups have suggested that the unacceptable level of predation be higher on public than private property. In the Columbia Basin, predator control is usually done on public waters or on property owned by public entities to protect a publicly owned resource (salmon) by controlling a publicly owned resource (fish, birds, or marine mammals) and is financed by taxpayers or electric ratepayers. In this case, the level of predation that is unacceptable would be more open to public debate than control done on private property that is financed by the landowner.

The amount of predation that is unacceptable also varies with the type of control that is used. Public acceptance is higher for nonlethal methods of control than lethal means, and some groups and individuals believe that nonlethal methods of control should be tried first, with lethal methods used as a last resort. The acceptance of lethal control also seems to depend upon the species that is controlled. In general, lethal control is considered more acceptable for fish like the northern pikeminnow than for birds or marine mammals. Some of the concerns about lethal control are included in comments by the Oregon Department of Fish and Wildlife on p. 29-30 of their (1998 "Draft Predation Action Plan: Avian Species") about using lethal control for control of bird predators of juvenile salmonids in the Columbia River Estuary:

"The shooting of Caspian terns, double-crested cormorants, and/or gulls is the option that would likely be the most controversial with the public. The overall benefits of this option would be limited, at best, and at worst, might result in the disturbance or 'take' of nesting bald eagles or other non-target species [e.g., listed brown pelicans]. In order to be very effective, large numbers of birds would have to be killed. Even if that could be accomplished, it is likely that these individuals would be replaced over time with birds migrating into the area into 'vacated' territories. To be effective, this activity would have to take place on a continual basis. It is highly unlikely that this would be either cost-effective or publicly acceptable. Furthermore, this would be in violation of international, federal and state laws. Lethal shooting has been used to a limited extent to discourage birds from foraging in the tailrace of some mainstem dams. It has been an effective method for reducing avian predation at specific sites where smolts are particularly vulnerable, but would not be effective in eliminating or reducing breeding colonies of terns, cormorants or gulls."

Finally, the level of unacceptance of predation is influenced by one's self-interest. For example, individuals or groups who are advocates for predators are unlikely to blame predators for the decline of salmon; groups who are advocates for dams (hydropower) are more likely to emphasize the importance of predators than of dams. Accordingly, it is not surprising that some viewpoints about predation are self-serving. It may be helpful for a reader to use the following "Self-Interest Profile in Salmon Recovery" to help reveal if a group's or individual's viewpoint is self-serving and to look for its strategies in defending its position.

Self-Interest Profile in Salmon Recovery : 0=not important, 1=minor importance, 2=very important

                    |4 H's________________________  |Ocean
Group's or          |Hydro- |Hab- |Hatch- |         |Condit- |Pred-
Individual's        |power  |itat |eries  |Harvest  |ions    |ators
-------------------------------------------------------------------
Self-Interest_______|_______|_____|_______|_________|________|______
Blame for Decline___|_______|_____|_______|_________|________|______
Factor(s) to Change_|_______|_____|_______|_________|________|______
---------------------------------------------------------------------

A group or individual may employ six strategies to promote its vision of what should or should not be done about predators. First, a group can be very selective and present evidence that only supports its position. Second, a group can try to discredit any evidence that it thinks may hurt its side. Third, a constituency can try to divert attention from changes that would affect its self-interest by blaming other factors for the salmon decline (e.g., hydropower advocates may blame fishermen or predators). Fourth, a group can try to delay actions by creating confusion about all the other possible factors that may be involved; confusion leads to indecision and continuation of the status quo. Fifth, a constituency can try to "divide and conquer" by publicizing wedge issues that may split an opposing coalition (e.g., a coalition of all fishermen could be split by focusing on conflicts between commercial and recreational fishermen or between nontribal and tribal fishermen). Finally, a group can present speculation to favor its side and try to masquerade it as science.

Establishing the Need for and Cost Effectiveness of Predator Control

Because predator control can be controversial, many wildlife management professionals and government agency staff recommend that the need for predator control be determined before conducting control. The need for predator management in the Columbia Basin has been carefully established for bird management in the Columbia River Estuary and for northern pikeminnow control in the Northern Pikeminnow Management Program (NPMP), but the need has only been assumed for control of birds by the U.S. Department of Agriculture's Wildlife Services (formerly Animal Damage Control) at several mainstem dams (my 2003 Review about bird predation at dams).

Wildlife and fisheries managers have also recommended that animal damage control be conducted only if control is cost effective (i.e., the cost of predation is less than the cost of predator control). Otherwise, the predation may not be significant enough to warrant the costs of predator control. The costs of control include not only the economic costs of conducting the control, but also biological, aesthetic, and/or social costs of conducting control. For example, a biological cost would be if it harms nontarget animals; a social cost could develop if control is very unpopular or controversial. However, Wildlife Services maintains that its control programs in the Columbia Basin do not have to be cost effective and that the cost of predation can be estimated by the cost of its control programs. With this circular logic, Wildlife Services could spend a considerable amount of taxpayer or electric ratepayer money controlling predators that may be taking an insignificant number of juvenile salmonids and justify doing so because it has spent so much money. Taxpayers and electric ratepayers can ask if their money is enhancing a bureaucracy rather than salmon. (This subject is also discussed in sections 4-E and 6-D-4 and in Appendix II-D in my 2003 Review about bird predation at dams.)

My Viewpoint about Predator Control in the Columbia Basin and Along the Oregon Coast

Because there is so much money and politics involved in salmon recovery issues, it is relevant for the reader to know the viewpoint of a web site because that may influence what information is presented and how it is presented.

I am an amateur, independent biologist. I am not a consultant nor am I employed by or a volunteer to work on salmon recovery issues for any governmental agency, educational institution, or nongovernmental group. Similarly to many wildlife managers, I believe that predator control can be justified when there is scientific evidence of the need for control and if control is cost effective.

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A Sample of Viewpoints about Predation of Salmon and Steelhead in the Columbia Basin and Along the Oregon Coast

This is only a sample of viewpoints about predation. The emphasis of this web site is on providing information about predation rather than in giving all viewpoints. The following links are for predators of adult as well as juvenile salmonids.

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Oregon Department of Fish and Wildlife's Predation Management Plans

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Predation of Juvenile Salmonids Offshore of the Columbia River

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Bird Predation Mostly in the Columbia River Estuary, But Some Predation in the Lower Columbia River is also Included.

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Columbia River Estuary Management Plans for Fish-eating Birds

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Bird Predation and Management at Columbia Basin Dams

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Bird Predation and Management Elsewhere in the Columbia Basin

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Oregon Coast Bird Predation and Management

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Fish Predation and Management in the Columbia Basin and Along the Oregon Coast

Northern pikeminnows are the fish predator of most concern. This species was known as northern squawfish prior to 1998.

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Marine Mammal Predation of Juvenile Salmonids in the Columbia Basin and Along the Oregon Coast

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Return to Table of Contents for Predation of Juvenile Salmon

Also see A Sampling of Salmon Recovery Viewpoints for the Columbia Basin & Oregon Coast

Email comments to Range D. Bayer, rbayer@orednet.org, Home Page, P. O. Box 1467, Newport, Oregon 97365 USA. (Range [Richard] Bayer is an independent biologist; he is not a consultant nor is he employed by or a volunteer to do biology work or research for a governmental agency, educational institution, or nongovernmental group)