The Willamette River Basin Task Force Recommendations Report
Draft Executive Summary

MISSION (11/21/97)

The Willamette River Basin Task Force was charged by Governor Kitzhaber to examine the causes of, and potential solutions to, water quality problems in the Willamette River. The Task Force approached the issue by considering all activities along the Willamette and its tributaries, as well as those in riparian areas and uplands. The Governor concurred with this "watershed" approach as presented by the Task Force in a December 1996 interim report.

The Task Force identified three focal points for action:

1. The health of the Willamette watershed, including human health, is at risk. Past decades of damaging practices, present detrimental activities, and their continuation into the future by a vastly increased population is simply unsustainable.

2. The lack of a coordinated, basin-wide strategy for watershed management harms both the public and the watershed. Our failure to take a community approach to Basin watershed issues allows us to avoid both individual and collective responsibility for the ecosystem.

3. We are in danger of economic and environmental bankruptcy if we continue to spend billions and years on ineffective measures. More importantly, we will lose control of our economic and environmental futures if we fail to find effective local solutions.

Over 100 recommendations are made which are action-oriented and aimed at multiple benefits:

• developing an ongoing, comprehensive, basinwide strategy for watershed health;
• focusing on the protection and restoration of wetland, riparian, and floodplain areas;
  • implementing cost effective solutions to flooding and sewage overflow problems;
  • exploring "softer" solutions that make use of wetlands and restored floodplains;
• establishing an effective system for addressing water-related human health issues;
• protecting and increasing the health of aquatic species and habitat;
• improving research, monitoring and data management efforts;
• employing education and incentives in addition to enforcement of current regulations;
• understanding and managing the impacts of population growth, transportation and land use;
• integrating Basin efforts with the Oregon Plan and other state or federal watershed efforts;
  • engaging the Willamette Basin community in long-term, active stewardship of our watershed.

The Task Force recommendations are guided by the following vision for the future:

The Willamette Basin will attain a dynamic balance between diverse human and ecological needs. People will live in healthy watersheds with functioning floodplains, habitats supporting a diversity of native species, and opportunities for people to connect with the wildness of a restored, healthy river system. Valley residents will be part of a Basin community, connected by a system of rivers and streams providing healthy aquatic life, clean drinking water, safe places for recreation, and supporting a vibrant economy. Residents will accept individual and collective responsibility for this vision, and provide leaders with a mandate and the resources necessary to achieve it.

Over one hundred specific recommendations were made affecting watershed health. The Task Force recommended the creation of a Willamette Basin Council to implement the recommendations, and provide a watershed-based perspective to policy makers.

HEALTH OF THE WILLAMETTE BASIN

The health of the mainstem Willamette River is perhaps the best indicator of overall watershed health within the Basin, since the river is a summation of all that occurs within the tributaries and upon the 11,500 square miles of land in the uplands and valley. The health of the Willamette is currently rated "slightly better than marginal" (indicating common exceedances of available standards or guidance values), with a steady decline from the headwaters to the mouth. Although the Willamette is perhaps in better health than it has been in more than a century, there are numerous indicators signaling ecosystem distress: Steelhead, Spring Chinook and Bull Trout populations in some parts of the basin have declined to the point where federal listings are quite possible. We continue to convert wetlands to other uses (6,500 acres in the last decade alone) indicating that the small fractions of the original wetland and riparian habitats that remain are continuing to shrink. Fish consumption advisories for some species are in effect for the entire mainstem, and toxic accumulations in sediment are deadly testaments to our decades of neglect.

Many important programs are already in place to address Basin watershed issues. However, we need a larger vision, a greater awareness, and a more holistic and integrated approach to achieve our vision. To this end, the Task Force recommends specific actions related to a series of objectives that are listed in this report to Governor Kitzhaber. A brief discussion of the major topic areas follows; please refer to the full report for specifics.

The time has come for us to undertake another campaign for the Willamette River - to create a sustainable and continuing effort to improve our stewardship of all watersheds in the Basin by involving governments, individual citizens, landowners and businesses in a partnership for the future.

HUMAN HEALTH

The Task Force has identified three human health issues of concern in the Willamette Basin:

1. Fish consumption. Oregonians are concerned that fish in the Willamette River may not be safe to eat. A health advisory is in effect related to frequent consumption of bass and squawfish (especially for young children and pregnant women) in the mainstem Willamette due to high levels of mercury. Other warnings concern risk of exposure to PCB's in the Columbia Slough. Most Valley residents are not aware of these advisories. Task Force recommended actions include:

Improve the effectiveness of fish consumption warnings to the public. Complete studies on Newberg Pool fish deformities, and examine fish health basinwide. Identify and eliminate/reduce the sources of toxins in fish and other aquatic species.

2. Drinking water. Although drinking water in the Basin meets current standards, increasing demand for new sources suggests that waters in the lower portions of the river and the adjacent shallow aquifer need attention to reduce contamination from chemicals and/or bacteria. Task Force recommended actions include:

Fully implement Oregon's existing, yet not fully implemented, Groundwater Protection Act. Reduce the amount of contamination reaching the river and aquifer. Ensure that minimum flow standards are adequate to dilute contaminants and maintain aquatic and ecosystem health.

3. Water contact recreation. Many segments of the river are contaminated with bacteria and considered unsafe for water contact recreation because some sewage treatment plants lack the capacity to handle sewage and other bacteria-laden runoff during periods of heavy rain. Contamination also comes from feedlots and other sources. Several cities in the Basin are upgrading their facilities (at considerable expense) to reduce levels of contamination. Task Force recommended actions include:

Identify sources of contaminants and establish a cost-effective reduction strategy basinwide. Improve coordination among agencies and establish a more effective system to inform the public of unsafe conditions.

ECOSYSTEM HEALTH

The Task Force has identified six ecosystem health issues of concern in the Willamette Valley Basin:

1. Water quality standards and pollution sources. Oregon lacks a coherent system to track contaminants, identify their sources, determine when dangers exist, and address problems in a consistent and timely way. Many streams throughout the Valley fail to meet water quality standards because of the presence in the water column and sediments of pesticides, heavy metals, dioxins, and other pollutants. The pollutants originate from industrial and municipal waste (point) sources and a variety of dispersed (nonpoint) sources associated with agriculture, forestry, industrial, and urban activities. Through regulation, the State has successfully reduced the amount of point source pollution entering the river. However, nonpoint sources do not lend themselves easily to regulatory control due to their diffuse and often intermittent nature. More than 90 percent of the total suspended solids are from nonpoint sources. Task Force recommended actions include:

Identify relative amounts of both point and nonpoint sources of pollution and the equity of clean-up efforts to mitigate impacts to the river. Increase public awareness of the problems of nonpoint source pollution, improve the effectiveness of monitoring, enhance research and extension efforts, and provide incentives for the application of new techniques. Develop a menu of best management practices for urban and rural residents.

2. Soil erosion and streambed sediments. Sediments trap contaminants, and when disturbed, release contaminants into the water column posing serious water quality hazards. Erosion causes the loss of productive soil, which degrades water quality and can adversely impact aquatic life. Much soil run-off ends up as streambed sediment. It can decrease the storage capacity of reservoirs, interfere with navigation, and increase the risks of flooding. Soil erosion is due to many factors, including construction, gravel mining, and some agricultural and timber practices. Sediments trap nutrients that are an important food source to aquatic species. Task Force recommended actions include:

Emphasize erosion prevention rather than sediment control. Use cover crops on agricultural lands and establish vegetated buffers along streams and wetlands throughout the Valley to control soil run-off from human activities on the land. Identify areas of contaminated sediment and prevent disturbance.

3. Instream flows and flood management. The Willamette floodplain has been diked, drained, filled, and confined to the point that it no longer functions as a healthy ecosystem with the capacity to support fish and wildlife, absorb and reduce the impact of flooding, and filter contaminants. Some streams and rivers in the Basin have high temperatures and insufficient flows during summer months, which adversely impact aquatic species such as salmon and steelhead. Low flows also reduce the ability of the river to dilute contaminants. Past efforts at flood management has emphasized structural controls like dams, channels, levees, etc. Task Force recommended actions include:

The development of an overall, coordinated strategy to address water management problems. Restoration of minimum stream flows that support aquatic life, while meeting human economic needs. A more balanced approach to flood management that allows the Willamette to act more like a river than a ditch. Closer coordination between state and federal agencies, local government, and private landowners to facilitate restoring the Basin's natural hydrologic functions.

4. Riparian, floodplain, wetland, and upland habitats. Once the Willamette Valley was covered with wetlands, swamps, bottomland hardwood forests, oak woodlands, and native prairies. Now, 87 percent of the original wetlands and riparian areas have been converted to other uses; an estimated 99 percent of the native prairies and 72 percent of the bottomland hardwood forests are gone. Loss of habitat is the major threat to all species currently at risk of extinction. Sixteen rare animals are associated with wetlands and riparian areas in the Valley. Development continues in valley floodplains, and no effective systems are in place to limit floodplain construction, protect remaining fragments of native habitat, or restore endangered habitat types. Task Force recommended actions include:

Develop a more systematic approach to protect and restore critical habitats. A commitment to using a broader range of tools-incentives, easements, land trades, and acquisitions (where feasible) - to help secure priority areas. Improve policies to address continuing construction in floodplains and riparian setbacks, as well as public expenditures for disaster relief.

5. Health of aquatic species. High rates of deformed fish have been found along a 30-mile stretch of the Willamette below Newberg, known as the "Newberg Pool" area. While the cause of these defects have yet to be ascertained, studies elsewhere typically attribute skeletal defects to a wide variety of chemical, physical, and biological factors. Research data consistently show a decline in the health of benthic (bottom-dwelling) and fish communities in the Willamette moving downstream from Eugene/Springfield to Portland. Populations of steelhead, spring Chinook and bull trout are in alarming decline. Few studies exist on the health of aquatic mammals, but a recent study of otters near the mouth of the Willamette linked organochlorine contamination to physical deformities and reproductive tract disorders. Task Force recommended actions include:

Formulation of a coordinated, basinwide conservation strategy to monitor the health of indicator species, identify priority areas for restoration, begin recovering aquatic species and habitats known to be declining, and initiate steps to prevent the decline of currently healthy aquatic species and habitats.

6. Exotic organisms. Many of the Valley's native plants and animals have been replaced by invasive, non-native organisms. Some of the most serious plant pests include Scotch broom, Himalayan blackberry, and English ivy. Exotic animals include a number of introduced warm water fish that compete with natives for food and habitat; bullfrogs, which prey on native fish and amphibians; and opossums, which have become urban pests. Task Force recommended actions include:

A comprehensive strategy among policy-makers, agencies, and landowners to identify and control harmful exotic plants and animals. The strategy should focus on preventing the spread of new infestations, restoring native species where feasible, and informing the public of these insidious organisms. The introduction of exotic animals should be strictly regulated.

SOCIAL AND ECONOMIC HEALTH

The Task Force has examined two social and economic issues of concern to watershed health in the Basin:

1. Population growth. Population in the Basin is expected to nearly double within the next 25-30 years, causing more land to be developed, more roads to be built, and creating more pressure on natural resources and recreation areas. Oregon's system of land use planning attempts to direct and manage growth, not limit it. Few tools are available to communities in the Valley to manage the impacts of development and expansion.

The Task Force recommends a comprehensive, basinwide strategy to address population growth concerns, including consideration of the carrying capacity of our natural resources.

2. Land use and land management. The impacts of land use upon watershed health are poorly understood and not effectively managed. With increasing population and development, more impervious surfaces will be created, potentially causing significant impacts to stream health, habitat loss and flooding patterns. Native habitat continues to be converted to agricultural and urban uses. Most of the land in the Basin is privately owned, suggesting a need for incentives to encourage landowners to protect sensitive riparian, floodplain, wetland and upland areas. Although Oregon has made significant investments in land use planning and improved land management strategies, constant vigilance will be required to protect ecosystems and quality of life in the Basin. Task Force recommended actions include:

Supporting and enhancing existing efforts of planning agencies of urban areas in the Basin to review and refine subdivision and zoning codes to lower obstacles to environmentally sound development. Examining Oregon's land use goals to see if they are adequate to address flood hazard mitigation, habitat loss, and outdoor recreation. Improving management of agricultural and forest lands, urban and suburban landscapes, parks and greenspaces. Improved understanding of the relationship between land use, transportation and watershed health.

INSTITUTIONAL AND POLICY RECOMMENDATIONS

The Task Force has identified three broad institutional and policy recommendations to help improve watershed health in the Willamette Basin:

1. Ongoing, coordinated structure. Throughout its deliberations, the Task Force has struggled with the complexity of the issues and number of organizations affecting Basin watershed health. A coordinated approach to watershed health is needed to utilize resources more effectively. Recently, a unique effort focused upon watershed health statewide has been launched; The Oregon Plan. Created by the Governor and Legislature, it is a unique, coordinated effort focused upon watershed health statewide. The Oregon Plan now includes the Healthy Streams Partnership and the Steelhead Supplement, both of which will have Willamette Basin components. These efforts offer a excellent base from which to launch future Willamette Basin efforts. Task Force recommendations include specific actions to integrate Basin efforts and the Oregon Plan:

The Creation of a Willamette River Basin Council to provide a stakeholder-guided, integrated, watershed health strategy for the Willamette Basin Community utilizing the recommendations of the Task Force and the Oregon Plan. Appointed by the Governor, this Council would have balanced representation from throughout the Basin and partner with existing entities such as watershed councils, the Willamette Livability Forum and other public or private entities. The Council would establish a Watershed Managers Group to promote alignment of individual resource management plans.

2. Resources for improved land and water management. The Task Force identified two resources - increased reliance on incentives and improved funding - key to improved land and water management in the Basin.

Incentives. Although many incentive programs are available to landowners to encourage improved management of land and natural resources, barriers remain. Some incentive programs do not offer a strong enough economic benefit to change poor management habits. Some landowners are reluctant to accept government funding for fear of additional regulation; others simply need better information and technical assistance to adopt new techniques. Task Force recommended actions include:

Focusing incentive programs on protecting and restoring riparian, floodplain, wetland, and upland habitat. They should encourage the adoption of new techniques to reduce water pollution through point and nonpoint sources. The primary audiences for these programs should be private landowners, homeowners, and businesses. Incentives can be provided by state and local governments, and can include technical and financial assistance, regulatory relief, and preferred labeling status for products resulting from sustainable operations. Existing barriers should be identified and removed.

Funding. The Task Force found that although significant investments are being made in programs designed to address water quality problems and associated efforts to improve land management, sufficient funding is not available to develop and implement a coordinated strategy to protect important resources in the Valley. For example, municipalities will spend billions on combined sewer overflow systems to reduce bacteria, but adequate funds are not available to track and correct the more insidious, widespread nonpoint sources of pollution. The Metro Greenspaces program has funds for land acquisition, but other areas do not. Oregon Parks and Recreation Department owns numerous parcels along the Willamette Greenway, but lacks the funding to manage them properly. Task Force recommended actions include:

Long-term, dedicated funding to finance a coordinated strategy addressing ecosystem concerns in the Basin. This funding could come from taxes on development, real estate transfers, pesticides, water, utilities, or an assortment of other relevant fees. According the Basin a higher priority status in state resource agency programs (Oregon Plan, Healthy Streams Partnerships), as well as additional funding to address critical issues associated with human health, deformed fish, endangered species, and lands subject to serious flooding. Aggressive pursuit by state agencies of available federal funding for flood control, habitat protection, and improved management of agricultural lands. Agencies, local governments, and private organizations to explore opportunities for partnerships and joint venture projects.

3. Monitoring and data management. Very little information is available to identify trends on sediment quality, water contact recreation safety, aquatic species health, and overall ecological functioning of the river system. Most Basin monitoring focuses on conventional water quality standard measurements (e.g., stream temperatures and dissolved oxygen levels), often using different methods and producing incompatible data. Task Force recommended actions include:

Develop improved techniques for collecting and managing data on the health of the Basin. Create new tools and systems to make sure people have relevant information for making individual and policy choices.

Complete and use modeling tools for use by DEQ and others in the implementation of actions.

Identification of the sources of pollutants to aid in the development of a basin strategy and action plans for reduction of impacts on fish, wildlife, ecosystem, and human health.

Make data readily available to the public, watersheds councils, agencies, and others for use in education; preparation of a watershed health report card; evaluation of the effectiveness of actions taken; and in making policy and action oriented decisions.

PUBLIC OUTREACH

An effective outreach program would foster a needed sense of community within the Basin, providing facts, tools and leadership to a populace that appears ready to act. Residents need to understand current and projected conditions and see themselves as part of a basin-wide community affecting and affected by the watershed. A public outreach program should provide information, education and opportunities for people to get directly involved in programs to improve watershed health in the Willamette Basin. This outreach program should:

Inform - An informed public is essential for protecting and improving the health of the Willamette River Basin. A coordinated delivery system should provide readily available, plain language information on the watershed. Establishment of a repository, electronic when appropriate, for data should be established. The development of a "Report Card" tracking watershed health in the Basin is currently underway.

Educate - Provide the public with the information necessary to make informed decisions. Support efforts to develop a documentary focused on the Basin Community and current and future efforts necessary for watershed health. Targeted educational materials should be connected by a common, Basin-wide theme.

Involve - Engaging the Willamette Valley residents in active citizen stewardship of Basin watershed resources can foster individual and collective responsibility for developing solutions and taking related actions. Convening an annual "Confluence Conference" including focal points for researchers and the general public could augment ongoing efforts to connect with urban and rural groups.

Public Input - The Task Force recommends that this report be "Taken on the Road" by Task Force members from various regions and interest groups for 45 days beginning in early January. This will provide opportunities for two way communication related to our recommendations.

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