One piece of the puzzle is that one fish harvested in a terminal area may represent 100 or more to be harvested in a mixed-stock fishery. When the goal is "maximum participation" that in-river fish, from a smaller stock, is more valuable in the outside fisheries. If WA gave up all mixed stock fisheries we could still get the full harvestable on WA stocks but would miss out on the "free" Canada, Oregon, and California fish.