The reality as I see it is that the pressure to retain PS saltwater salmon opportunities is what drives this whole mess. If WDFW gave up on that and the paper fish incidental take that it represents, I believe that we could have robust in-river fisheries. Because the state utilizes the (possibly bogus) BIA approval to have saltwater angling federally permitted in cooperation with the tribes, they are also beholden to the tribes. The tribes have access to the bogus permit. WDFW does not. For political, practical, and historical reasons, WDFW will likely permit in this fashion for the foreseeable future.
The department could decide to forego having saltwater seasons. They could look at the whol picture and say, "Hey, we'll take our portion in he rivers where we can reduce the incidental take." The whales, Swinomish and Muckleshoot can have the salt, we would have the added benefit of not having to worry about salmon "incidental mortality" by those fishing for trout or summer runs etc. I don't know what the upper Skagit would think but that should not be part of the decision making process.
Here is why I don't see this happening: the tribes like having the power the present permitting paradigm offers. Politically, it also provides a ton of cover for the governor and to some extent the department. Provided that they are cooperating with the tribes, they are protected by the general public's positive feeling towards native harvest. The other factor is that the true financial political elites of the fishing community are the big boat salt water anglers. A set of downriggers costs more that the value of all of my single handed fly rods combined. They cost more than I paid for my drift boat. The average salmon trollers boat costs as much as I will spend on the garage that I am building (although maybe not with the way I mis-estimated the foundation costs!). The saltwater boat anglers have power, even though they feel like the biggest victims. They are wealthy and in this game of paper fish allocation, they are getting the kings allocated to them. It is the kings that count. The state can throw a bone to the tribes by keeping the shore bound river angler of the water with very little political push back.
The permitting paradigm that we are in will always pit; sporty vs. commercial, tribal vs. non-tribal, river vs. salt and even tribe vs. tribe. It's co-management via confrontation.
We tend to think that it's burger king and that we deserve to "Have it your way." In the end it's really that the user groups with the most political clout will get it their way but not really. They'd just get something that they want.
I hit an 18 lb king on Thursday in the salt. It was delicious. I have 9 more portions ready for the grill this summer. I don't have a boat but as long as that is the fishery that is open, I will accept a boat ride. It's my favorite fish in the world to eat, maybe my favorite food all together. I say this just so that people understand that I am a river angler, salt anger, fly angler and gear angler. Many anglers aren't just river anglers or just boat anglers or just fly anglers etc. Most of us like to fish. The way in which we allocate the king salmon take amongst ourselves is what drives the season and makes the whole system so combative. It's a natural outcome of the present system.