Restoring the Path: Culvert Replacement and its Implications for the “Salmon People"

By Colin Lau, ESRM ‘25

Adult Coho Salmon leaping out of water during its journey to reach its spawning ground (Image credit: Bureau of Land Managements).

To say the Muckleshoot Nation relies on salmon for their livelihood is a massive understatement. For the Muckleshoot, catching salmon is not only a means of sustenance but their lifeblood–the essence of their culture, resulting in their title as the “Salmon People”. However, salmon run productivity in the PNW has plummeted by up to 95% over the past century due to a variety of factors, including climate change, water pollution, poor hatchery practices, and large dams. Barrier culverts, often resulting from poor design and water flow issues, are increasingly recognized as yet another stressor facing salmon populations. However, one legal decision has played a key role in addressing these challenges, leading to the large-scale culvert replacement across Western Washington.

The Boldt Decision, issued in 1974, guaranteed the fishing rights of seven tribes–including the Muckleshoot–up to half of the fish harvest that passed through their recognized fishing grounds. This court ruling marked a groundbreaking victory for Indigenous rights, and caused a series of events that led to the large-scale culvert replacement we see today. This includes the Supreme Court’s “Culvert Case” in 2013 to replace culverts with the worst impact on anadromous fish by 2030. Many of these culverts were constructed before clear guidelines on their impact on fish migration, while others were structurally failing due to a lack of maintenance. With new culverts being installed, previously blocked upstream habitats are expected to reopen, increasing the salmon population that passes through tribal fishing grounds.

Before and After - a culvert replacement project along Pussyfoot Creek on the Muckleshoot Reserve, which will open up 9 miles of salmon spawning ground. Image on the right shows the new bridge which allows a more natural creek bed to be built (Image credit: WSDOT).

With the Culvert Case deadline of 2030 quickly approaching, speculation remains on whether the landowners can meet the target goal of replacing all the culverts. While WSDOT has replaced 146 culverts since 2013, completing the list of nearly a thousand culverts across four state agencies still seems logically far-reach. Cost acts as another barrier: with billions of dollars already allocated towards the culvert replacement program, WSDOT estimated an additional $5 billion to replace all culverts in 2024. This sum of money would make it the most expensive restoration project in Washington’s history. Moreover, the effectiveness of replacing all the culverts continues to be debated. Even after the culverts are replaced, there are other non-state culverts or barriers in the watershed that hinder fish passage, in addition to degraded habitat and water quality, limiting the value of the program.

While the culvert replacement program is a step toward addressing historical injustices and revitalizing salmon migration routes, additional strategies must be pursued. Climate change, pollution, and other systemic threats to salmon populations require comprehensive, collaborative solutions that extend beyond culvert removal. As the 2030 deadline approaches, the future of the Muckleshoot Nation—and their ability to preserve their heritage as the “Salmon People”—depends on the success of these efforts and the collective commitment to restoring the ecological and cultural integrity of the Pacific Northwest.