18 Inshore/Offshoure Allocations for Pollock, Establish Catcher Vessel Operational Area, Designate Western Alaska Community Development Quota for Pollock
Purpose and Need
Amendment 18 developed out of a concern to prevent preemption of resources by one industry sector over another. Substantial processing of pollock by several catcher/processor vessels contributed to an early closure of the pollock fishery in the Shelikof Strait area in 1989, effectively preventing inshore components from realizing their anticipated economic benefit from processing pollock. Upon industry request, the Council considered the issues of coastal community development and shoreside preference at its June 1989 meeting and adopted the Fishery Planning Committee’s suggested management alternatives for analysis. The problem statement adopted by the Council identified the issue as a resource allocation problem and stated that specific processing allocations for the inshore and offshore sectors established at the beginning of a fishing year would resolve the preemption problem and allow operators to better plan their harvesting and processing activities for the year.
To address this problem, the Council determined the need to establish inshore/offshore allocations of pollock and Pacific cod in the GOA, and pollock in the BSAI. In addition, the amendments would establish a Catcher Vessel Operational Area (CVOA) in the Bering Sea, which would limit access to pollock within the area to catcher vessels delivering to inshore or offshore processors. These amendments also established the Western Alaska Community Development Quota (CDQ) program pollock allocations, to provide Western Alaska communities with long-term employment and access to the fisheries. The primary purpose of Amendments 18 and 23 was to protect the inshore component of the fishery from preemption by the offshore fleet. The amendments provided an interim solution for the inshore component, which includes small coastal communities that are highly dependent on fishing to maintain economic stability. While the amendments did not directly address overcapitalization in the fisheries, the approval by the Council specifically expressed intent to develop and implement a more comprehensive, long-term limited access program.
Analysis
An extensive final EIS and EA/RIR/IRFA and a 265-page appendix containing community profiles were prepared for these amendments. Eight alternatives including the status quo were considered. The alternatives not chosen would have implemented traditional management tools or formed an allocation system with a different basis, such as vessel class, species, or at the individual vessel level. The alternative chosen was broadened to include development of a Comprehensive Fishery Rationalization Program, of which inshore/offshore allocations would be a part.
Regulation Summary
The alternative adopted and approved defined the inshore and offshore components of the fisheries. BSAI Amendment 18 was only partially approved, allocating 35% of the 1992 non-roe pollock season TAC to the inshore component, and the remaining 65% to the offshore component. The portion that was not approved would have further allocated pollock through 1995: (the inshore allocation would have increased to 40% in 1993 and 45% in both 1994 and 1995). A NMFS economic review indicating a large net loss to the Nation as a result of this action provided the rationale for disapproval by the Secretary of Commerce. (Analysis of adjoining GOA Amendment 23 indicated a net benefit; therefore, that amendment was approved in full. The GOA inshore component was allocated 90% of the Pacific cod TAC and 100% of the pollock TAC for each fishing year.) While catcher/processors from the offshore component would not be able to conduct directed pollock fishing in the GOA, they would be allowed appropriate bycatch amounts. Amendment 18 also established the CVOA south of 56 N. latitude and between 163 and 168 W. longitudes and the Community Development Quota program. As a result of the CDQ program, 7.5 percent of the BSAI pollock TAC was reserved for CDQ fisheries (a nonspecific reserve) at the beginning of the year, and that amount would be reduced as allocations are made to community development projects.
- Final Rule (57 FR 61326, 12/24/1992)
- Proposed Rule (57 FR 46133, 10/07/1992)
- Notice of Availability (57 FR 45602, 10/02/1992)
- Final Rule (57 FR 23321, 06/03/1992)
- Proposed Rule (56 FR 66009, 12/20/1991)
- Notice of Availability (56 FR 64738, 12/12/1991)
Results
After the partial amendment was approved, in September 1992 the Council submitted revised BSAI Amendment 18 to NMFS for review. NMFS approved pollock allocations of 35% for pollock processing by the inshore component and 65% by the offshore component for each of the years 1993-95. These allocations resulted in a redistribution of fish from one sector (offshore) to another (onshore), and provided for stability and business planning advantages for both sectors. Stability in dependent coastal communities was also enhanced by this amendment. Allocations to the western Alaska CDQ program provided the economic base and opportunity for 56 Alaskan coastal communities to become integral participants in the BSAI commercial fisheries, through direct revenues from the pollock allocation and development of fisheries infrastructures.