The idea for this "headwaters to the sea" strategy was first proposed in 1892. Due to the success of hatcheries on American rivers, the idea did not gain any momentum at the time. The idea was revived in the early 1990s when conservationists realized the shortcomings and lack of coordination between efforts by federal, state, and local authorities. The agencies in charge of the fisheries such as NOAA often lack the authority to act on existing threats. The new conceptualization of salmon habitat conservation posited that we must protect the most intact or valuable drainages first by working from the headwaters downstream to create a continuous corridor of protected habitat. Several of these sub-basin scale refuges would come together to protect an entire basin as a whole unit. This does not mean that all of the land will be owned by governments or conservation organizations. The plan envisions both public and private landowners working together on a sub-basin scale to preserve habitat. This goal will be met using three main principles. The first aims to create "a series of intact and diverse (in terms of life histories, genetics, and species) Pacific salmon populations in full basin sanctuaries." These populations could be a source of individuals to transplant to other rivers if needed. The second principle aims to "Ensure the maintenance of functional habitat connectivity from the headwaters to the estuary." This connection of habitat helps to promote diversity in the population by providing several localized spawning locations. The final principle establishes a "system of strongholds (regional priority sub-basins)" which would contain the most biologically significant populations and habitats.
