The Upper Cook Inlet Task Force created by the Legislature in 2008 has released a draft report of its findings about problems in the Upper Cook Inlet salmon fishery.

The task force was made up of 10 legislators, five from the Senate and five from the House, nine of which were from the Matanuska-Susitna Borough areas or Anchorage, and one from the Kenai Peninsula. The task force was charged with examining conservation and allocative issues and the economic effect of Cook Inlet salmon and the maximum benefit of those salmon to the people of Alaska.

The 96-page draft report asks one basic question about Cook Inlet salmon allocation: Is it fair?

The draft report concludes it is not only not fair, it may be unconstitutional.

The Alaska Constitution mandates that resources be used for the "maximum benefit" of the people, but does not define "maximum benefit." The task force report explores the possible meanings but does not draw any firm conclusions. However, it does go to great lengths to point out the economic prowess of the sport fishing industry over the commercial fishing industry.

The report points to two studies: one titled "Economic Impacts and Contributions of Sportfishing in Alaska, 2007," commissioned by the Alaska Department of Fish and Game, and the other titled "The Seafood Industry in Alaska's Economy," sponsored by the Marine Conservation Alliance and processing organizations.

Neither study looked at Cook Inlet directly, both were statewide studies. However, through extrapolation, the task force concluded that "in 2007 sport fish angler spending in the Upper Cook Inlet salmon fisheries generated a direct economic impact of more than $209 million for the region and Alaska. When combined with resident spending in the fisheries, the total economic contribution of the Upper Cook Inlet sport fisheries was approximately $630 million. That included related spending such as fuel, groceries, fishing gear, lodging, restaurants, etc."

When looking at the economic contribution of commercial fishing, however, the task force only used the "first wholesale" value of the product. It did not factor in spending on gear, insurance, fuel, groceries, etc. The first wholesale value for Cook Inlet salmon in 2006 was about $30.8 million, although economist Gunnar Knapp, in his presentation to the task force, put the commercial economic contribution at somewhere around $77 million.

Shortly after the task force was formed in 2008, the United Cook Inlet Drift Association (UCIDA) released its own numbers about the economic impact of salmon fishing on the Kenai Peninsula. It concluded that when all related spending was taken into account, commercial salmon fishing was responsible for $300 million in economic activity on the peninsula, including Seward.

The task force concludes that the Alaska Constitution obviously does not mean only economic benefit when it talks about "maximum benefit." However, it makes the case that economics should have some consideration when allocating the resource. The report repeatedly points out that in Upper Cook Inlet, 82 percent of the resource is allocated to 3 percent of the users. It twice brings up the idea of a 50 percent reallocation.

While the task force was originally formed because of concerns about Susitna salmon stocks, it does little to explore possible solutions to low run numbers, except one line chiding ADF&G for failing to come up with a plan to deal with the pike problem. It also does not mention the on-going collaborative study with Cook Inlet Aquaculture Association and ADF&G that has shown Susitna escapement numbers are at least double what was previously thought, due to sonar counter issues. It is possible that some streams in the Susitna drainage may actually be over-escaped. Preliminary findings from that study were presented to the Board of Fisheries in February, 2008, several months before the task force was formed. However, the report is incomplete, and a cover letter from task force chair Craig Johnson indicates that information will be explored further in the final draft.

While it does acknowledge that curtailing commercial fishing to allow more fish to reach the Susinta drainage has in the past resulted in over-escapement of the Kenai and Kasilof Rivers, it does not necessarily consider that a problem. It points to a study by University of Alaska Professor Bruce Finnley regarding over-escapement that states, "Higher levels of nutrients (from increased numbers of decaying carcasses) support more juvenile salmon. More younger salmon survive, and more salmon eventually come back and die, releasing more nutrients. This positive feedback can increase the carrying capacity of the freshwater system."

The task force was apparently unaware that the past two years of weak runs on the Kenai River that necessitated shutting down the commercial fishery during the peak of the season had parent years of massive over-escapement, as much as double what the management plan called for.

The task force explored the idea of a buy-back program to eliminate some of the commercial fishing pressure on Cook Inlet stocks, although it did not explore how to eliminate only active permits, which would be necessary to actually reduce fishing pressure. Currently one-third of Cook Inlet permits go unfished every year, so if they were included in a buy-back program it would do little to change the situation. The task force did find other problems with a buy-back, including a funding source and constitutional issues.

The report acknowledges that substantial reallocation would create further problems for an already-struggling fishery, although it concludes that the fishery has many other problems. It states, "...clearly the UCI commercial salmon fishing industry is struggling despite the fact that it is awarded the bulk of the harvest. Thus, allocations can't be a major cause of the industry's current problems. Future allocations may be less determinative to the industry's continued viability, therefore, than other factors outside of state control."

It also concludes that while commercial harvest won't go away entirely, any loss in economic contribution caused by reducing or eliminating the commercial fishery would quickly be made up by increased opportunities in the sport fishing industry.

"Because the Cook Inlet salmon sport fishery is a rare commodity in the world market, its value will only increase in the years ahead. And if we choose to build it - they will come," according to the report.

A complete copy of the draft report as well as all the testimony received by the task force is available at http://www.housemajority.org/coms/jcis/jcis_background.php.

Cristy Fry has commercial fished in Homer since 1978. She also designs and builds gear for the industry. She currently longlines for halibut and gillnets salmon in upper Cook Inlet aboard the F/V Realist. She can be reached at realist468@gmail.com.