From uncertainty to co-production: Structural and systemic barriers to salmon recovery in Puget Sound

Abstract

This case study examines barriers to implementing “H-Integrated” salmon recovery strategies—efforts that coordinate habitat, hatchery, harvest, and hydropower actions—in Puget Sound. Based on a focus group with Tribal, State, Federal, and nonprofit practitioners, we identified five interconnected constraints: data gaps , modeling frameworks , decision-making under uncertainty , limited organizational capacity , and collaboration across silos . These were embedded within a sixth cross-cutting constraint: structural and systemic barriers , exemplified by complicated institutional dynamics and differences in how expertise is recognized across organizations. Participants emphasized that these challenges are closely connected, making it harder for groups to plan together, adapt to change, or try new approaches. Many of these challenges reflect not only technical limitations, but also stem from contrasting perspectives on data collection and decision authority, as well as the complex histories that have shaped relationships among agencies, organizations, and Tribal Nations. We interpret these dynamics through the lenses of situated knowledge and epistemological pluralism and suggest that effective knowledge co-production can bridge these gaps and strengthen collaborative problem-solving, innovation, and risk-taking. Participants emphasized that, along with modeling tools that reflect the realities of on-the-ground decision-making, H-Integration depends on institutional support for collaborative monitoring and trust-building. In practice, this means developing processes that integrate different perspectives and treating co-production as an ongoing institutional commitment.