[Congressional Record Volume 140, Number 57 (Wednesday, May 11, 1994)]
[Senate]
[Page S]
From the Congressional Record Online through the Government Printing Office [www.gpo.gov]
[Congressional Record: May 11, 1994]
From the Congressional Record Online via GPO Access [wais.access.gpo.gov]
DECISION BY NATIONAL MARINE FISHERIES SERVICE TO SPILL WATER OVER EIGHT
DAMS TO AID SALMON RUNS
Mr. CRAIG. Madam President, at 12 o'clock a.m. this morning a
decision was brought about on eight dams on the Snake and the Columbia
River systems in the Pacific Northwest that I believe is a disastrous
stumble by this administration into the endangered species debate over
several species of salmon in the Snake and the Columbia system, a
misguided and perhaps disasterous decision to spill water over these
eight dams and to set in place a motion and action that is yet to be
justified.
With no forewarning, the National Marine Fisheries Service ordered
the Bonneville Power Administration and the Army Corps of Engineers to
dump these large quantities of water over the spillways. There is no
research and no scientific basis to argue what is now being done.
Instead of helping the salmon, this action will place them in dire
jeopardy due to the gas supersaturation in the water, an unavoidable
result of heavy spilling of water over these structures. Gas
supersaturation is a well-known phenomenon in fisheries biology, and it
is lethal to fish above the 120 percent supersaturation.
Let me enter into the Record, and I ask unanimous consent that it be
printed in the Record, an EPA study that resulted in criteria that the
States of Oregon and Washington used in establishing rates of
supersaturation in the tumbling of water over these structures.
There being no objection, the material was ordered to be printed in
the Record, as follows:
[From the U.S. Environmental Protection Agency, Office of Water
Regulations and Standards, Washington, DC, May 1, 1986]
Quality Criteria for Water 1986
gases, total dissolved
Criterion.--To protect freshwater and marine aquatic life,
the total dissolved gas concentrations in water should not
exceed 110 percent of the saturation value for gases at the
existing atmospheric and hydrostatic pressures.
Rationale.--Fish in water containing excessive dissolved
gas pressure or tension are killed when dissolved gases in
their circulatory system come out of solution to form bubbles
(emboli) which block the flow of blood through the capillary
vessels. In aquatic organisms this is commonly referred to as
``gas bubble disease''. External bubbles (emphysema) also
appear in the fins, on the opercula, in the skin and in other
body tissues. Aquatic invertebrates are also affected by gas
bubble disease, but usually at supersaturation levels higher
than those lethal to fish.
The standard method of analyzing for gases in solutions has
been the Van Slyke method (Van Slyke et al. 1934); now, gas
chromatography also is used for determination of individual
and total gases. For determination of total gas pressure,
Weiss has developed the saturometer, a device based upon a
thin-wall silicone rubber tube that is permeable to gases but
impermeable to water. Gases pass from the water through the
tube, thus raising the internal gas pressure which is
measured by a manometer or pressure gauge connected to the
tube (NAS, 1974). This method alone does not separate the
total gas pressure into the separate components, but Winkler
oxygen determinations can be run simultaneously, and gas
concentrations can be calculated.
Total dissolved gas concentrations must be determined
because analysis of individual gases may not determine with
certainty that gas supersaturation exists. For example, water
could be highly supersaturated with oxygen, but if nitrogen
were at less than saturation, the saturation as measured by
total gas pressure might not exceed 100 percent. Also, if the
water was highly supersaturated with dissolved oxygen, the
oxygen alone might be sufficient to create gas pressures or
tensions greater than the criterion limits, but one would not
know the total gas pressure or tension, or by how much the
criterion was exceeded. The rare and inert gases such as
argon, neon and helium are not usually involved in causing
gas bubble disease as their contribution to total gas
pressures is very low. Dissolved nitrogen (N2), which
comprises roughly 80 percent of the earth's atmosphere, is
nearly inert biologically and is the most significant cause
of gas bubble disease in aquatic animals. Dissolved oxygen,
which is extremely bioactive, is consumed by the metabolic
processes of the organism and is less important in causing
serious gas bubble disease though it may be involved in
initiating emboli formation in the blood (Nebeker et al.
1976a).
Percent saturation of water containing a given amount of
gas varies with the absolute temperature and with the
pressure. Because of the pressure changes, percent saturation
with a given amount of gas changes with depth of the water.
Gas supersaturation decreases by 10 percent per meter of
increase in water depth because of hydrostatic pressure; a
gas that is at 130 percent saturation at the surface would
be at 100 percent saturation at 3 meters' depth.
Compensation for altitude may be needed because a
reduction in atmospheric pressure changes the water/gas
equilibria, resulting in changes in solubility of
dissolved gases.
There are several ways that total dissolved gas
supersaturation can occur:
1. Excessive biological activity--dissolved oxygen
concentrations often reach supersaturation because
of excessive algal photosynthesis. Renfro (1963) reported gas
bubble disease in fishes resulting, in part, from algal
blooms. Algal blooms often accompany an increase in water
temperature and hits higher temperature further contributes
to supersaturation.
2. Lindroff (1957) reported that water spillage at
hydropower dams caused supersaturation. When
excess water is spilled over the face of a dam it entrains
air as it plunges to the stilling or plunge pool at the base
of the dam. The momentum of the fall carries the water and
entrained gases to great depths in the pool; and, under
increased hydrostatic pressure, the entrained gases are
driven into solution, causing supersaturation of dissolved
gases.
3. Gas bubble disease may be induced by discharges from
power-generating and other thermal sources (Marcello et al.
1975). Cool, gas-saturated water is heated as it passes
through the condenser or heat exchanger. As the temperature
of the water rises, percent saturation increases because of
the reduced solubility of gases at higher temperatures. Thus,
the discharged water becomes supersaturated with gases and
fish or other organisms living in the heated water may
exhibit gas bubble disease (DeMont and Miller, 1972: Malouf
et al. 1972; Keup, 1975).
In recent years, gas bubble disease has been identified as
a major problem affecting valuable stocks of salmon and trout
in the Columbia River system (Rulifson and Abel, 1971). The
disease is caused by high concentrations of dissolved
atmospheric gas which enter the river's water during heavy
spilling at hydroelectric dams. A report by Ebel et al.
(1975) presents results from field and laboratory studies on
the lethal, sublethal and physiological effects of gas on
fish, depth distribution of fish in the river (fish can
compensate for some high concentrations of gas by moving
deeper into the water column), detection and avoidance of gas
concentrations by fish, intermittent exposure of fish to gas
concentrations, and bioassays of many species of fish exposed
to different concentrations of gas. Several conclusions
resulting from these studies are:
1. When either juvenile or adult salmonids are confined to
shallow water (1 m), substantial mortality occurs at and
above 115 percent total dissolved gas saturation.
2. When either juvenile or adult salmonids are free to
sound and obtain hydrostatic compensation either in the
laboratory or in the field, substantial mortality still
occurs when saturation levels (of total dissolved gases)
exceed 120 percent saturation.
3. On the basis of survival estimates made in the Snake
River from 1966 to 1975, it is concluded that juvenile fish
losses ranging from 40 to 95 percent do occur and a major
portion of this mortality can be attributed to fish exposure
to supersaturation by atmospheric gases during years of high
flow.
4. Juvenile salmonids subjected to sublethal periods of
exposure to supersaturation can recover when returned to
normally saturated water, but adults do not recover and
generally die from direct and indirect effects of the
exposure.
5. Some species of salmon and trout can detect and avoid
supersaturated water; others may not.
6. Higher survival was observed during periods of
intermittent exposure than during continuous exposure.
7. In general, in acute bioassays, salmon and trout were
less tolerant than the nonsalmonids.
Dawley and Ebel (1975) found that exposure of juvenile
spring chinook salmon, Oncorhynchus tshawytscha, and
steelhead trout, Salmo gairdneri, to 120 percent saturation
for 1.5 days resulted in over 50 percent mortality; 100
percent mortality occurred in less than 3 days. They also
determined that the threshold level where significant
mortalities begin occurring is at 115 percent nitrogen
saturation (111 percent total gas saturation in this test).
Rucker (1974), using juvenile coho salmon, Oncorhynchus
kisutch, determined the effect of individual ratios of oxygen
and nitrogen and established that a decrease in lethal effect
occurred when the nitrogen content fell below 109 percent
saturation even though total gas saturation remained at 119
percent saturation, indicating the importance of determining
the concentration of the individual components (O2 and
N2) of the atmospheric supersaturation. Nebeker et al.
(1976a), using juvenile sockeye salmon, Oncorhynchus nerka,
also showed that there was a significant increase in fish
mortality when the nitrogen concentration was increased while
holding the total percent saturation constant. They also
showed that there was no significant difference in fish
mortality at different co2 concentrations.
Research collected by Bouck et al. (1975) showed that gas
supersaturated water at and above 115 percent total gas
saturation is acutely lethal to most species of salmonids,
with 120 percent saturation and above rapidly lethal to all
salmonids tested. Levels as low as 110 percent will produce
emphysema in most species. Steelhead trout were most
sensitive to gas-supersaturated water followed by sockeye
salmon, Oncorhynchus nerka. Chinook salmon, Oncorhynchus
tshawytscha, were intermediate in sensitivity. Coho salmon,
Oncorhynchus kisutch, were significantly the more tolerant of
the salmonids though still much more susceptible than non-
salmonids like bass or carp.
Dapnnia magna exhibited a sensitivity to supersaturation
similar to that of the salmonids (Nebeker et al. 1975), with
115 percent saturation lethal within a few days. Stoneflies
exhibited an intermediate sensitivity similar to bass with
mortality at 130 percent saturation. Crayfish were very
tolerant, with levels near 140 percent total gas saturation
resulting in mortality.
No differences are proposed in the criteria for freshwater
and marine aquatic life as the data available indicate that
there probably is little difference in overall tolerances
between marine and freshwater species.
The development of gas bubble disease in menhaden,
Brevoortia sp., and their tolerance to gas saturation in
laboratory bioassays and in the field (Pilgrim Nuclear Power
Station Discharge Canal) are discussed by Clay et al. (1975)
and Marcello et al. (1975). At 100 percent and 105 percent
nitrogen saturation, no gas bubbles developed externally or
in any of the internal organs of menhaden. At 105 percent
nitrogen saturation, however, certain behavioral changes
became apparent. Fish sloughed off mucus, swam erratically,
were more excitable, and became darker in color. Menhaden
behavioral changes observed at 110 percent nitrogen
saturation were similar to those noted at 105 percent. In
addition, at 110 percent gas emboli were found in the
intestines, the pyloric caeca, and occasionally the
operculum. The behavioral changes described were also
observed at 115 percent, and clearly defined subcutaneous
emphysema was observed in the fins and occasionally in the
eye. At 120 percent and 130 percent nitrogen saturation,
menhaden developed within a few hours classic symptoms of gas
bubble disease. Externally, emboli were evident in all fins,
the operculum and within the oral cavity.
Exophthalmia also occurred and emboli developed in internal
organs. The bulbous arteriosis and swim bladder were severely
distended, and emboli were found along the length of the gill
arterioles, resulting in hemostasis. At water temperatures of
30 deg.C, menhaden did not survive, regardless of gas
saturation level. At water temperatures of 15, 22, and
25 deg.C 100 percent of the menhaden died within 24 hours at
120 percent and 130 percent gas saturation. Fifty percent
died after 96 hours at 115 percent (22 deg.C). Menhaden
survival after 96 hours at 110 percent nitrogen saturation
ranged from 92 percent at 22 deg. and 25 deg. to 83 percent
at 15 deg.C. Observations on the relationship between the
mortality rate of menhaden and gas saturation levels at
Pilgrim Station during the April 1975, incident suggest that
the fish may tolerate somewhat higher gas saturation levels
in nature.
It has been shown by Bouck et al. (1975) and Dawley et al.
(1975) that survival of salmon and steelhead smolts in
seawater is not affected by prior exposure to gas
supersaturation while in fresh water. No significant
mortality of juvenile coho and sockeye salmon occurred when
they were exposed to sublethal concentrations of
supersaturated water and then transferred to seawater
(Nebeker et al. 1976b).
Mr. CRAIG. Madam President, the order directed by the White House
would raise supersaturation gas to more than 130 percent.
I have said something just now which is very important, Madam
President. I have said ``by the White House.'' I am now told by good
authority that on direct orders from our White House these agencies and
their scientists were overruled so that Al Gore--and I repeat that--so
that the Vice President could get directly involved in what I believe
is a phenomenally dangerous precedent in the utilization of his power.
The States of Oregon and Washington were asked to comply by the
signature of their Governors. Oregon finally did. And I understand, as
of this moment, Washington is complying. They are forced to comply by
the blackmail of the Federal Government.
The National Marine Fisheries Service and its scientists have been
overruled. Everybody who has studied this issue for the last 2\1/2\
years, including a decision brought about by all of these agencies
together known as a biological opinion, as of 12 o'clock last night
were overruled.
I can only say that in the history of this country I am not sure that
a precedent like this has taken place. In the public-land West where
the Endangered Species Act is already raising havoc with the
unemployment of thousands of loggers in the Pacific Northwest now, for
an arbitrary and capricious decision almost singlehandedly by this
White House, clearly the integrity of this law is thrown into jeopardy.
The Corps of Engineers has told NMFS they will not comply with the
order unless they have in hand a written sign-off from the Governors.
The corps is justified in demanding this cover. Its biologists and
others are balking. They fear, and rightfully so, that spilling water
will have the exact opposite effect from the intended, and that both
juvenile and adult salmon will die as a consequence. If that were to
occur, very serious legal claims under the Endangered Species Act could
be brought against agencies and responsible individuals for knowingly
and deliberately taking an action jeopardizing a listed species.
NMFS claims there will be a 5-percent improvement in survival of
smolts which are spilled. I dispute that there is any relevant science
supporting that outcome, but setting that aside, let's examine the
purported benefits of this $30 million order. Only 17 percent of the
smolts would be carried over the dams by the spill--the rest would
continue to be safely transported by barge around the dams. So, we can
calculate a 5-percent gain for 17 percent of the smolts--an overall
improvement of less than 1 percent. Carrying it further, if we
calculate the adult-equivalents--how many more adults will eventually
return--we find that residents of the Pacific Northwest would be paying
at least $34,000, and as much as $138,000 for each additional returning
adult spring chinook. And most of those will be hatchery fish. Benefits
to our listed wild stocks will be minuscule, and the cost for each
additional wild fish could reach $1 million. Have we all lost our
senses?
Just 2 weeks ago NMFS' own salmon recovery team addressed a hearing
of the Senate Energy and Water Appropriations Subcommittee to explain
the details of their final salmon recovery plan. Nowhere in their plan
were spills such as these recommended. Neither were spills called for
in the Northwest Power Planning Council salmon plan completed 2 years
ago. Neither were they specified in the 5-year biological opinion on
river operations completed by NMFS and the other Federal agencies in
March. If spill is not a suggested component of any of the established
plans or processes to recover salmon, why has it surfaced as a solution
now? Because it is a political bone, tossed by the administration to
Judge Marsh, in an attempt to demonstrate that drastic measures will be
taken to save the salmon. Drastic, yes, Effective? Absolutely not.
I can only implore those in responsible positions within the
administration, and Judge Marsh, to listen to the salmon recovery team.
While I do not support every last measure, their final plan is a
reasoned and comprehensive approach to recovering the salmon. It is
based on the best available science and reflects the extensive
biological experience of the seven eminent team members. There plan,
yet to be accepted by NMFS, has the greatest potential of any proposal
forwarded so far to unite a broad spectrum of regional interests behind
a common solution. We should heed their advice.
The PRESIDING OFFICER. The Senator from Idaho is recognized.
Mr. CRAIG. I thank the Chair.
(The remarks of Mr. Craig pertaining to the introduction of S. 2106
are located in today's Record under ``Statements on Introduced Bills
and Joint Resolutions.'')
Mr. CRAIG. Madam President, I yield back the remainder of my time.
The PRESIDING OFFICER. Who yields time?
Mrs. HUTCHISON addressed the Chair.
The PRESIDING OFFICER. The Senator from Texas.
Mrs. HUTCHISON. Madam President, I ask unanimous consent that I be
allowed to proceed as if in morning business for 10 minutes.
The PRESIDING OFFICER. Is there objection?
The Senator from New Mexico.
Mr. DOMENICI. Can we charge the time equally?
Charge the time to our side.
The PRESIDING OFFICER. Without objection, the Senator is recognized
for 10 minutes.
The PRESIDING OFFICER. The Senator from Texas is recognized.
Mrs. HUTCHISON. I thank the Chair.
(The remarks of Mrs. Hutchison pertaining to the introduction of S.
2105 are located in today's Record under ``Statements on Introduced
Bills and Joint Resolutions.'')
The PRESIDING OFFICER. Who yields time?
Several Senators addressed the Chair.
The PRESIDING OFFICER. The Senator from New Mexico controls time.
Mr. DOMENICI. Madam President, I do not know how we are going to do
it on that side. Senator Grassley has been waiting a long time, also.
Mr. President, on behalf of Senator Sasser, I yield 10 minutes to
Senator Baucus and off our side I yield 10 minutes to Senator Grassley.
I understand Senator Baucus was here before Senator Grassley, so it
would have to be in that order.
The PRESIDING OFFICER. If there is no objection, Senator Baucus will
be recognized for 10 minutes and following that Senator Grassley for
another 10 minutes.
The Senator is recognized for 10 minutes.
Mr. BAUCUS. I thank the Chair and I thank the Senator from New Mexico
and the Senator from Iowa, as well.
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